Appropriations for FY2001: Legislative Branch
CRS Report for Congress
Appropriations for FY2001:
Legislative Branch
Updated April 20, 2001
Paul E. Dwyer
Specialist in American National Government
Government and Finance Division
Congressional Research Service The Library of Congress
Appropriations are one part of a complex federal budget process that includes budget
resolutions, appropriations (regular, supplemental, and continuing) bills, rescissions, and
budget reconciliation bills. The process begins with the President’s budget request and is
bounded by the rules of the House and Senate, the Congressional Budget and Impoundment
Control Act of 1974 (as amended), the Budget Enforcement Act of 1990, and current program
authorizations.
This report is a guide to one of the 13 regular appropriations bills that Congress considers
each year. It is designed to supplement the information provided by the House and Senate
Appropriations Subcommittees on Legislative Branch Appropriations. It summarizes the
current legislative status of the bill, its scope, major issues, funding levels, and related
legislative activity. The report lists the key CRS staff relevant to the issues covered and
related CRS products.
This report is updated as soon as possible after major legislative developments, especially
following legislative action in the committees and on the floor of the House and Senate.
NOTE: A Web version of this document with
active links is available to congressional staff at
[http://www.loc.gov/crs/products/apppage.html]
Appropriations for FY2001: Legislative Branch
Summary
Congress appropriated $2.649 billion for legislative branch operations in
FY2001, a 6.6% increase over the FY2000 appropriation of $2.486 billion. The
FY2001 funding level includes the appropriation in the regular annual legislative
branch appropriations bill; a supplemental appropriation of $118 million in a
miscellaneous appropriations bill; and a rescission of 0.22%.
Regular FY2001 Appropriations. The first regular FY2001 legislative branch
appropriations bill (H.R. 4516) approved by Congress was vetoed by President
Clinton in late October 2000. Seven weeks later, on December 14, a new legislative
branch appropriations bill (H.R. 5657), which contained the funding levels as
approved in the original bill, was introduced and incorporated by reference in the
FY2001 Consolidated Appropriations Act (H.R. 4577). The latter act was signed into
law (P.L. 106-554) on December 21, 2000.
During initial consideration of the regular legislative branch bill, the House
Appropriations Committee, in compliance with budget allocation restrictions,
established funding for FY2001 at 5.5% less than the level appropriated for FY2000.
When the Senate took up the bill it approved an overall 3.7 % increase. The House
later restored most of the funds cut at the committee level when it adopted a
manager’s amendment containing an additional $95.7 million in funding during floor
consideration of the House bill. The compromise bill approved by the conference
committee provided for a 2.1% over FY2000.
Among the major funding issues considered were actions to:
!increase funds for the Capitol Police to employ 100-115 additional officers to
implement the Capitol Police Board’s security plan;
!temporarily transfer administration of the Capitol Police to a chief administrative
office under jurisdiction of the General Accounting Office;
!merge Library of Congress and Government Printing Office police with the Capitol
Police;
!provide adequate funds for electronic document printing, the digital online program
of the Library of Congress, and enhancements to the legislative information system;
!fund the support agency staff succession programs to replace employees eligible for
retirement in the immediate future; and
!authorize GAO greater flexibility in reductions-in-force and early retirements and
separation payments.
Additional Regular Appropriations and Rescission. A second bill (H.R. 5666),
which contained an additional $118 million in regular FY2001 legislative branch
appropriations funds, and a 0.22% across-the-broad cut in FY2001 appropriations,
was also incorporated by reference into P.L. 106-554.
CRS
Area of ExpertiseNameDivisionTel.
Appropriations ProcessJames SaturnoGOV/FIN7-2381
Appropriations ProcessSandy StreeterGOV/FIN7-8646
Committee Funds Paul RundquistGOV/FIN7-5846
Legislative Officers and AgenciesPaul DwyerGOV/FIN7-8668
Legislative Officers and Agencies Lorraine TongGOV/FIN7-5846
Legislative Operations Mildred AmerGOV/FIN7-8304
Legislative OperationsPaul DwyerGOV/FIN7-8668
Legislative StaffEric PetersenGOV/FIN7-0643
Legislative Mail John PontiusGOV/FIN7-6733
Division abbreviations: GOV/FIN = Government and Finance
Contents
Most Recent Developments........................................1
Introduction ................................................... 2
Status ........................................................ 4
Actions on the FY2001 Legislative Branch Appropriations Bill,
H.R. 4577 (P.L. 106-554) .................................5
Actions on FY2000 Supplemental Appropriations for the
Legislative Branch.......................................8
Major Issues Driving Discussions on the FY2001 Bill...................11
Overall Funding Level Issues..................................11
Technology Issues..........................................13
Fire Safety in Congressional Buildings...........................16
House and Senate Committee Funding...........................16
Security Issues.............................................17
Architect of the Capitol Issues.................................22
Support Agency Funding.....................................24
Major Funding Trends.......................................31
For Additional Reading..........................................42
CRS Reports..............................................42
Selected World Wide Web Sites................................42
List of Figures
Figure 1. Title I and Title II of the FY2000 Legislative Branch
Appropriations Act (P.L. 106-57), including a Rescission and
Supplemental (P.L. 106-113); A Second Supplemental
(P.L. 106-246); and a Third Supplemental (P.L. 106-554).............3
Figure 2. Legislative Branch Appropriations, FY1995-FY2000............13
Figure 3. Legislative Branch Appropriations, FY1995-FY2000............13
Figure 4. Appropriations for the Architect, FY1995-FY2000.............24
Figure 5. Appropriations for the Architect, FY1995-FY2000.............24
Figure 6. Appropriations for CBO, FY1995-FY2000...................25
Figure 7. Appropriations for CBO, FY1995-FY2000...................25
Figure 8. Appropriations for GAO, FY1995-FY2000...................27
Figure 9. Appropriations for GAO, FY1995-FY2000...................27
Figure 10. Appropriations for LOC, Excluding CRS, FY1995-FY2000......28
Figure 11. Appropriations for LOC, Excluding CRS, FY1995-FY2000......28
Figure 12. Appropriations for CRS, FY1995-FY2000...................29
Figure 13. Appropriations for CRS, FY1995-FY2000...................29
Figure 14. Appropriations for GPO, FY1995-FY2000..................30
Figure 15. Appropriations for GPO, FY1995-FY2000..................30
Table 1. Status of Legislative Branch Appropriations, FY2001
(H.R. 4516) (S. 2603) (H.R. 5657 Which Was Incorporated
by Reference in P.L. 106-554)..................................4
Table 2. Legislative Branch Appropriations, FY1995 to FY2000..........32
Table 3. Legislative Branch Appropriations, FY2001 (H.R. 4516) (S. 2603)
H.R. 5657 Which Was Incorporated by Reference in P.L. 106-554.....33
Table 4. Senate Items, FY2001....................................35
Table 5. House of Representatives Items, FY2001.....................36
Table 6. Legislative Branch Budget Authority Contained in
Appropriations Acts, FY1995-FY2000..........................37
Table 7. Legislative Branch Budget Authority Contained in
Appropriations Acts, FY1995-FY2000..........................39
Appropriations for FY2001:
Legislative Branch
Most Recent Developments
Congress appropriated $2.649 billion for legislative branch operations in
FY2001, a 6.6% increase over the FY2000 appropriation of $2.486 billion. The
FY2001 funding level includes the appropriation in the regular annual legislative
branch appropriations bill; a supplemental appropriation of $118 million in a
miscellaneous appropriations bill; and a rescission of 0.22%.
Regular FY2001 Appropriations. The first regular FY2001 legislative branch
appropriations bill (H.R. 4516) approved by Congress was vetoed by President
Clinton in late October 2000. Seven weeks later, on December 14, a new legislative
branch appropriations bill (H.R. 5657), which contained the funding levels as
approved in the original bill, was introduced and incorporated by reference in the
FY2001 Consolidated Appropriations Act (H.R. 4577). The latter act was signed into
law (P.L. 106-554) on December 21, 2000.
During initial consideration of the regular legislative branch bill, the House
Appropriations Committee, in compliance with budget allocation restrictions,
established funding for FY2001 at 5.5% less than the level appropriated for FY2000.
When the Senate took up the bill it approved an overall 3.7 % increase. The House
later restored most of the funds cut at the committee level when it adopted a
manager’s amendment containing an additional $95.7 million in funding during floor
consideration of the House bill. The compromise bill approved by the conference
committee provided for a 2.1% over FY2000.
Additional Regular Appropriations and Rescission. A second bill (H.R.
5666), which contained an additional $118 million in regular FY2001 legislative
branch appropriations funds, and a 0.22% across-the-broad cut in FY2001
appropriations, was also incorporated by reference into P.L. 106-554.
From October 1, the beginning of FY2001, to December 21, 2000, the legislative
branch was funded at its FY2000 level in continuing resolutions.
Introduction
Effective in FY1978, the legislative branch appropriations bill has been divided
into two titles. Title I, Congressional Operations, contains budget authorities for
activities directly serving Congress. Included in this title are the budgets of the
House, the Senate, Joint Items (joint House and Senate activities), the Office of
Compliance, the Congressional Budget Office (CBO), the Architect of the Capitol
(AOC) (except the Library of Congress (LOC) buildings and grounds), the
Congressional Research Service (CRS) within the Library of Congress, and
congressional printing and binding activities of the Government Printing Office
(GPO).
Title II, Related Agencies, contains budgets for activities not directly supporting
Congress. Included in this title are the budgets of the Botanic Garden, the Library of
Congress (except the Congressional Research Service), the Library buildings and
grounds maintained by the Architect of the Capitol, the Government Printing Office
(except congressional printing and binding costs), and the General Accounting Office
(GAO). Periodically since FY1978, the legislative bill has contained additional titles
for such purposes as capital improvements and special one-time functions.
In FY2000, Title I budget authority was 69.7% of the total appropriation of
$2.486 billion, including a rescission and supplementals.1 Title II budget authority
was 30.3% of the total appropriation. In addition, there is legislative budget authority
that is not included in the annual legislative branch appropriations act or supplemental
appropriations acts. It includes permanent budget authority for both federal funds and
trust funds, and other budget authority.2
1The figure includes funds in the regular annual FY2000 Legislative Branch Appropriations
Act (P.L. 106-57); a 0.38% rescission and supplemental of $10 million in P.L. 106-113; a
supplemental of $17.5 million in P.L. 106-246; and a supplemental of $11.1 million in P.L.
106-554, which incorporated by reference the provisions of H,.R. 5666, miscellaneous
appropriations bill.
2Other budget authorities are those of some non-legislative entities within the legislative
branch budget that are actually funded in other appropriations bills.
Figure 1. Title I and Title II of the FY2000
Legislative Branch Appropriations Act (P.L.
106-57), including a Rescission and
Supplemental (P.L. 106-113); a Second
Supplemental (P.L. 106-246); and a Third
Supplemental (P.L. 106-554)
Permanent federal funds are available as the result of previously enacted
legislation and do not require annual action.3
Permanent trust funds are monies held in accounts credited with collections from
specific sources earmarked by law for a defined purpose. Trust funds do not appear
in the annual legislative bill since they are not budget authority. They are included in4
the U.S. Budget either as budget receipts or offsetting collections.
The Budget also contains some non-legislative entities within the legislative
branch budget. They are funded in other appropriation bills, but are placed in the
3FY2000 total legislative branch permanent federal fund authority was $279 million,
comprised of House and Senate Member pay ($95 million); House and Senate use of foreign
currencies ($3 million); House and Senate international conferences and contingencies ($1
million); and LOC payments to copyright owners ($180 million). Sources for permanent
federal funds are FY2001 U.S. Budget (for Senate items) and House Appropriations
Committee. Figures in the U.S. Budget are rounded to the nearest million.
4FY2000 total legislative branch permanent trust fund authority was $51 million. This figure
comprises the Library of Congress gift and trust fund accounts ($41 million); the Library of
Congress cooperative acquisitions revolving fund ($2 million); U.S. Capitol Preservation
Commission trust funds ($1 million); Architect of the Capitol for the Botanic Garden, gifts
and donations ($6 million); and John C. Stennis Center for Public Service Training and
Development trust funds ($1 million). The source for permanent trust funds is the House
Committee on Appropriations.
legislative section by the Office of Management and Budget for bookkeeping
purposes. 5
Status
Table 1. Status of Legislative Branch Appropriations, FY2001 (H.R. 4516)
(S. 2603) (H.R. 5657 Which Was Incorporated by Reference in P.L. 106-554)
SubcommitteeConference Report
Markup House House Senate Senate Conference Approval
ReportPassageReportPassageReport4Public LawHouseSenateHouse5Senate
5/3/00 1 5/18/00 2 H.Rept. (373-50) S.Rept. 7/17/00 H.Rept. 212-209 58-37 6 12/21/00
106-635 106-304 106-796
1The subcommittee vote to report the measure was 6-3. The full House Appropriations Committee markup was May 9, 2000. The
committee voted 31-23 to report the measure to the House.2
The Senate version was marked up by the full Senate Appropriations Committee on May 18, 2000. The committee voted 28-0
to report the measure (S. 2603) to the Senate.3
Passage was by unanimous consent. On May 25, 2000, by a vote of 98-2, the Senate agreed to the motion to advance S. 2603 to
the third reading, and subsequently the bill was engrossed and returned to the Senate calendar. The Senate passed H.R. 4516, after
incorporating the text of S. 2603, as amended. 4
Conference report appeared in the Congressional Record on July 27, p. H7095-7126.5
On July 27, the House agreed to H. Res. 565, the rule waiving points of order against the conference report to accompany H.R.
4516 (214-210).6
Earlier, on Sept. 20, 2000, the Senate failed to approve the conference report (28-69).7
The first FY2001 bill, H.R. 4516, was vetoed Oct. 30, 2000. The second bill, H.R. 5657, introduced Dec. 14, was incorporated
by reference in H.R. 4577, FY2001 consolidated appropriations bill, signed by the President on Dec. 21 (P.L. 106-554).
5The FY2001 U.S. Budget includes non-legislative entities under two headings: (1) “U.S. Tax
Court” and (2) “other legislative branch agencies – legislative branch boards and
commissions.” Included in the latter category are the National Bipartisan Commission on the
Future of Medicine; the Medicare Payment Advisory Commission; the Census Monitoring
Board; the U.S. Commission on International Religious Freedom; the Gambling Impact Study
Commission; and a subcategory titled “other legislative branch boards and commissions,”
with no indication of boards and commissions included.
For a more accurate picture of the legislative branch budget in FY2001, the budget
authority for non–legislative entities should be subtracted from the total legislative budget
authority provided in the U.S. Budget. The FY2001 U.S. Budget shows an FY2001 total
legislative budget authority request of $3.082 billion, including permanent federal and
permanent trust funds, non–legislative entities, and a deduction of $8 million in off-setting
receipts from sales to the public. After removing non–legislative entities ($38 million), the
total is $3.036 billion, still including permanent federal funds and permanent trust funds.
Excluding permanent federal funds ($311 million) and permanent trust funds ($37 million),
the total is $2.688 billion. The source for these figures is the FY2001 U.S. Budget. The
pending legislative branch budget request before the House Appropriations Committee was
$2.716 billion, which reflected a revision by the legislative branch of the President’s request.
Actions on the FY2001 Legislative Branch Appropriations Bill,
H.R. 4577 (P.L. 106-554)
Submission of FY2001 Budget Estimates. On February 7, 2000,
President Clinton released the FY2001 budget request of $2.688 billion for legislative
activities funded in the legislative branch appropriations bill.6 The revised budget7
estimate for the legislative branch was $2.716 billion, and was an increase of $258.3
million, or 10.5%, over the FY2000 appropriation of $2.458 billion, before
supplementals.
Actions on the House FY2001 Legislative Funding Bill (H.R. 4516).
On June 22, the House passed its version of the FY2001 legislative funding bill, H.R.
4516, which contained $1.914 billion (excluding Senate items). The FY2001 funding
level was a decrease of $9.8 million, or 0.5%, from the FY2000 appropriation of
$1.924 billion.8 During floor consideration the House adopted a managers’
amendment adding $95.7 million to the bill as it was reported by the House
Appropriations Committee.
As reported earlier on May 23, H.R. 4516 contained a 5.5% reduction of $105.6
million, to $1.818 billion in FY2001 (excluding Senate items) from $1.924 billion in
FY2000 (H.Rept. 106-635).9
The overall reduction was the result of compliance by the Subcommittee on
Legislative and the House Appropriations Committee with the FY2001 House budget
allocations made by the concurrent budget resolution passed by the House on March10
less $94 million.
As reported, the bill contained reductions that included -1.2% for the House of
Representatives, -11.7% for the Capitol Police (including the pending FY2000
6The source is the FY2001 U.S. Budget. This figure is not exact because the Office of
Management and Budget (OMB), which prepares the U.S. Budget, rounds to the nearest
millions of dollars.
7The source is the House Appropriations Committee. In December of each year, legislative
agencies submit their budget requests for the upcoming fiscal year to OMB. The agencies’
requests are prepared during the previous months. Subsequently, OMB incorporates the
agencies’ requests without change into the President’s annual budget submitted to Congress
early the following year. Legislative agencies may revise their budget requests at any time,
and the $2.716 billion was a revision by the legislative branch of the amount included in the
President’s budget.
8The FY2000 appropriations base used by the House Appropriations Committee contained
a $17.1 million supplemental appropriation in H.R. 3908, passed by the House on March 30,
9The FY2000 appropriations base used by the House Appropriations Committee contained
a $17.1 million supplemental appropriation in H.R. 3908, passed by the House on March 30.
10The conference report on H.Con Res. 290 was adopted by the House and Senate on April
supplemental), -8.8% for the Office of Compliance, -17.9% for the Architect of the
Capitol (including the pending FY2000 supplemental and excluding Senate items), -
6.7% for the Congressional Research Service, -25.3% for the Government Printing
Office, -6.9% for the General Accounting Office, and -3.9% for the Congressional
Budget Office.
The House Appropriations Committee estimated that 1,720 full time equivalent
positions (FTEs) would be eliminated in the legislative branch. Some agencies,
however, would have had limited authority to make their budget reductions in some
non-personal areas. Based on agency estimates, according to members expressing
additional views, the bill possibly meant reductions of 438 from the Capitol Police,
707 from the GAO, 114 from CRS, 31 from CBO, 156 from the AOC, 62 minimum
from GPO, and 319 from the House of Representatives.
Earlier, on May 4, the House Appropriations Committee chairman released
funding allocations (referred to as 302(b) allocations) of $2.355 billion in budget
authority for the legislative branch in FY2001. The House allocation was $45 million
less than the Senate allocation of $2.5 billion. On May 8, the House Appropriations
Committee voted to report its version of the overall FY2001 legislative budget,
agreeing without change to the bill reported by its Subcommittee on Legislative on
May 3.
On June 20, in order for the manager’s amendment of an additional $95.7 million
to be adopted, the House Appropriations Committee reallocated an additional $113
million to the Subcommittee on Legislative from the Subcommittee on
Transportation.
Hearings were held by the House Appropriations Subcommittee on Legislative
on January 27 and February 1 and 2, 2000.
Actions on the Senate FY2001 Legislative Funding Bill (S. 2603).
On July 17, the Senate passed H.R. 4516 by unanimous consent, after incorporating
the text of S. 2603, as amended. As passed, H.R. 4516 contained $1.721 billion
(excluding House items), a 3.7% increase from $1.662 billion in FY2000 (excluding11
House items). The FY2000 appropriation base used by the Senate did not include
an FY2000 supplemental of $17.1 million in H.R. 3908, passed by the House on
March 30 (S.Rept. 106-635).
Prior to Senate consideration, however, the Senate minority leader had stated his
intention of seeking to postpone Senate passage until after the House considered its
version.
Earlier, on May 24, the Senate began consideration of its version of the FY2001
legislative branch appropriations bill, S. 2603. On May 25, by a vote of 98-2, the
11The FY2000 appropriation base used by the Senate in the Senate Appropriations Committee
report did not contain a $17.1 million FY2000 supplemental appropriation in H.R. 3908, as
passed by the House on March 30, 2000. The House Appropriations Committee included the
$17.1 million in its FY2000 appropriation base.
Senate agreed to the motion to advance S. 2603 to the third reading (thereby ending
the time to offer amendments), and subsequently the bill was engrossed and returned
to the Senate calendar.
As passed by the Senate, H.R. 4516 contained a 3.9% increase for the Senate,
a 29.1% increase for the Capitol Police, a 3.7% increase for the Office of Compliance,
a 3.8% increase for the Congressional Budget Office, a 0.1% increase for the
Architect of the Capitol (including Library buildings and grounds, but excluding
House office buildings), a 1.0% increase for the Library of Congress, excluding the
Congressional Research Service, a 3.4% increase for the Congressional Research
Service, 3.7% increase for the Government Printing Office, and a 1.9% increase for
the General Accounting Office. Discussion during the Senate Appropriations
Committee markup indicated that the bill did not reduce FTE staff positions.
Earlier, on May 4, 2000, the Senate Appropriations Committee approved its
FY2001 budget allocations for its subcommittees, with an allocation of $2.5 billion
for the legislative branch. The Senate allocation was $145 million more than the
House allocation of $2.355 billion.
Hearings were held by the Senate Subcommittee on Legislative Branch on
February 8, 22, and 29, and March 21, 2000.
Actions on the FY2001 Conference Report on H.R. 4516. The
conference report on H.R. 4516 was filed July 27, and approved by the House on
September 14 (212-209). The Senate approved the report on October 12 (58-37),
after having failed to approve it earlier on September 20 (28-69). The report
contained $2.527 billion, a 2.1% increase over the FY2000 appropriation of $2.475
billion. The report also contained $51.1 million in emergency FY2000 supplemental
appropriations for the legislative branch and the Department of Housing and Urban
Development, Federal Housing Administration. Both the legislative branch and the
FY2000 supplemental appropriations are contained in Division A of the bill. Division
B contained provisions of the FY2001 treasury and postal service appropriations bill
and a repeal of the excise tax on telephone and other communications services.
Of the $51.1 million in FY2000 emergency supplemental appropriations, $11.1
million was for legislative branch activities – $2.1 million for the Capitol Police Board
for security enhancements, and $9 million for repairs to the garage of the Cannon
House office building.
Veto of H.R. 4516 by the President. On October 30, 2000, the President
vetoed H.R. 4516. In his veto message, the President criticized the bill for providing
funds for operation of the Congress and White House before passing other
appropriations measures affecting the public. His statement read in part:
I am returning herewith without my approval, H.R. 4516, the Legislative Branch
and the Treasury and General Government Appropriations Act, 2001. This bill
provides funds for the legislative branch and the White House at a time when the
business of the American people remains unfinished.
The Congress’ continued refusal to focus on the priorities of the American people
leaves me no alternative but to veto this bill. I cannot in good conscience sign a
bill that funds the operations of the Congress and the White House before funding
our classroom, fixing our schools, and protecting our workers.”12
Until the FY2001 bill was enacted on December 21, the legislative branch was
funded at its FY2000 level by continuing resolutions beginning on October 1, at the
start of FY2001.
Enactment of FY2001 Legislative Branch Funds in P.L. 106-544.
Pursuant to the President’s veto of H.R. 4516, FY2001 legislative branch funds were
contained in H.R. 5657, introduced on December 14. H.R. 5657 was included by
reference in P.L. 106-554, the FY2001 Consolidated Appropriations Act (H.R. 4577),
signed by the President on December 21, 2000.
P.L. 106-554 also incorporated by reference the provisions of H.R. 5666,
miscellaneous appropriations bill, which contained additional FY2001 legislative13
branch appropriations of $118 million and a 0.22% across-the-board cut.
The total FY2001 legislative branch appropriation including the 0.22% cut is
$2.649 billion.
Actions on FY2000 Supplemental Appropriations for the
Legislative Branch
During 2000, Congress also approved the following FY2000 supplemental
appropriations - $10 million for the Russian leadership program of the Library of
Congress, $136,700 for a gratuity payment, and a 0.38% rescission (P.L. 106-113);
$17.5 million for the Architect of the Capitol for fire safety (P.L. 106-246); $2.1
million for the Capitol police board for security and $9 million for the Architect of the
Capitol for House office buildings (P.L. 106-554).
Action on a Rescission and Supplemental to FY2000 Legislative
Branch Appropriations (P.L. 106-113). During the last days of the 1999
session, Congress approved a 0.38% across-the-board rescission in the FY2000
appropriations acts, including that for the legislative branch. The provision was
contained in H.R. 3194, the FY2000 Consolidated Appropriations Act, which was
signed into law as P.L.106-113 on November 29, 1999. P.L. 106-113 also contained
a $10 million supplemental for the Library of Congress to continue operation of the
Russian leadership program and $136,700 for a gratuity payment.
12U.S. Congress, House, Veto Message on H.R. 4516 - Message from the President of the
United States, H. Doc. 106-306, 106th Cong., 2nd sess., prepared by the House Committee on
Appropriations (Washington: GPO, 2000), p. 1.
13This appropriation contained $423,900 for gratuity payments, $1,033,000 for the Architect
of the Capitol, $100 million for the Library of Congress digital program, and an additional
$16.5 million for the Senate subheading, Miscellaneous Items.
Action on a Second Bill Containing an FY2000 Supplemental for
the Legislative Branch (H.R. 3908). On March 30, the House passed an
FY2000 supplemental appropriations measure, H.R. 3908, which contained $1714
million for the legislative branch, as follows:
!$1.9 million to the Capitol Police Board for additional costs of security
enhancements to the Library of Congress buildings and grounds; and,
!$15.2 million to the Architect of the Capitol, for the account “Capitol buildings
and grounds,” for fire safety, as follows: Capitol buildings and grounds,
“Capitol buildings - salaries and expenses,” $7.0 million; House office
buildings, $4.2 million; Capitol power plant, $3,000; Botanic garden, “salaries
and expenses,” $26,000; Architect of the Capitol, “Library buildings and
grounds - structural and mechanical care,” $3.9 million.
The Senate delayed further action on H.R. 3908 due in part to concerns over the
rising costs of the supplemental and the desire of Senate Majority Leader Lott to
attach a reduced supplemental to one of the first FY2001 regular annual
appropriations bills.
Subsequently, the $17 million supplemental was added to S. 2536 (see below).
Action on a Third Bill Containing an FY2000 Supplemental for the
Legislative Branch (S. 2536 and H.R. 4461). The FY2000 legislative
supplemental appropriation contained in H.R. 3908, as passed by the House on March
rural development, food and drug administration, and related agencies appropriations
bill. S. 2536, which was reported to the Senate on May 9 (S.Rept. 106-288),
contained:
!$11.9 million in emergency appropriations for the Capitol Police Board (under
joint items) for additional security enhancement expenses including (1) $10
million for the initial implementation of the Capitol Police master plan, subject
to approval of the Committees on Appropriations of the House and Senate,
and (2) $1.9 million for security enhancements to the Library of Congress
buildings and grounds to complete installation of a closed circuit television and
to install bollards around the Madison building perimeter.
!$2.7 million in emergency appropriations for the Capitol Police, salaries (under
joint items) for overtime expenses; and,
!$17.5 million in emergency appropriations for the Architect of the Capitol to
implement identified fire safety upgrades as follows: “Capitol buildings and
grounds, “Capitol buildings - salaries and expenses,” $7.0 million; Senate office
buildings, $2.3 million; House office buildings, $4.2 million; Capitol power
plant, $3,000; Botanic garden, “salaries and expenses,” $26,000; and Architect
14Due to rounding, the following appropriations do not add exactly to $17.1 million.
of the Capitol, “Library buildings and grounds - structural and mechanical
care,” $3.9 million;
!language regarding expenditure of funds received by the Architect as gifts for
construction of the national garden associated with the Botanic Gardens.
!language that makes changes in funding and reporting requirements of the
Trade Deficit Review Commission.
The $17.5 million appropriation for fire safety was subsequently deleted from
S. 2536 and inserted in H.R. 4425, the FY2001 military construction appropriations,
during conference (see discussion following). Also deleted from S. 2536 was
language relating to the Trade Deficit Review Commission.
The other three legislative branch provisions (for $11.9 million, $2.7 million, and
Architect of the Capitol language) were incorporated by the Senate in H.R. 4461, the
House version of the FY2001 agriculture appropriations bill. H.R. 4461 was
amended by the Senate to contain the language of S. 2536 and passed by the Senate
on July 20. The three provisions were dropped during alter consideration of H.R.
Action on a Fourth Bill Containing an FY2000 Supplemental for the
Legislative Branch, H.R. 4425 (P.L. 106-246). Conferees on the FY2001
military construction appropriations bill, H.R. 4425, agreed to add a $17.5 million
supplemental for the Architect of the Capitol for fire safety. H.R. 4425 was signed
into law by the President on July 13 (P.L. 106-246).
The appropriations for fire safety upgrades were as follow: “Capitol buildings
and grounds, “Capitol buildings - salaries and expenses,” $7.0 million; Senate office
buildings, $2.3 million; House office buildings, $4.2 million; Capitol power plant,
$3,000; Botanic garden, “salaries and expenses,” $26,000; and Architect of the
Capitol, “Library buildings and grounds - structural and mechanical care,” $3.9
million.
Action on Conference Report on H.R. 4475, FY2001 Department of
Transportation appropriations bill (P.L. 106-346). Conferees on H.R. 4475
(H.Rept. 106-940, October 5, 2000) added language relating to operations of the
legislative branch which:
!provided additional funds to the Federal Law Enforcement Training Center to
establish a Washington, D.C. area law enforcement training center for the
Treasury Department, other federal agencies, the United States Capitol Police,
and the Washington, D.C. Metropolitan Police Department, primarily for
firearms and vehicle operations requalifications.
!included a new provision amending section 108 of the FY2001 legislative
branch appropriations bill15 to place the chief administrative officer (CAO)
position for the U.S. Capitol Police under the direct control of the Capitol
Police, in consultation with the Comptroller General of the United States.
According to the conference report “The Comptroller General is to monitor
the performance of the CAO and report to the chief of the Capitol Police, the
Capitol Police Board, and the appropriations and authorizing committees of
the Senate and House. The chief is to report the CAO’s plans and progress
made in resolving the several administrative problems of the Capitol Police to
the appropriations and authorizing committees of the Senate and House of
Representatives.”
Action on Supplementals in H.R. 5666, Miscellaneous
Appropriations Bill (P.L. 106-554). H.R. 5666 contained an FY2000
supplemental of $11.1 million - $2.1 million for the Capitol Police Board for security
and $9 million to the Architect of the Capitol for House office buildings. H.R. 5666
was incorporated by reference in P.L. 106-554, FY2001 Consolidated Appropriations
Act.
Major Issues Driving Discussions
on the FY2001 Bill
Among the major funding issues considered and resolved were actions to:
!increase funds for the Capitol Police for 100 - 115 additional officers to
implement the Capitol Police Board’s security plan; temporarily transfer
administration of the Capitol Police to a chief administrative office, under
jurisdiction of the General Accounting Office (subsequently changed to
jurisdiction of the U.S. Capitol Police);
!merge the Library of Congress police and the Government Printing Office
police with the Capitol Police (provision deleted in conference); provide
adequate funds for electronic document printing, the digital online program of
the Library of Congress, and enhancements to the legislative information
system;
!fund the support agencies’ staff succession programs to replace employees
eligible for retirement in the immediate future; and authorize the comptroller
general greater authority for flexibility in a reduction-in-force and for voluntary
early retirement authority and separation payments (provision deleted in
conference).
Overall Funding Level Issues
Each spring, as members of the House Subcommittee on Legislative and the
Senate Subcommittee on Legislative Branch consider funding requests from
15At the time conferees reported H.R. 4475, the FY2001 legislative branch appropriations bill
had been reported from conference and approved by the House.
legislative agencies, they are faced with three options on funding levels: to maintain
a flat budget; to provide a modest increase; or to approve a budget decrease.
Statements by subcommittee members during the January and February 2000 hearings
suggested support for a fairly flat budget for FY2001. However, the FY2001 bill
reported to the full Appropriations Committee, and subsequently reported to the
House, represented a 5.5% reduction, or $105.6 million, from the current funding
level for FY2000. The House subsequently added $95.7 million during floor
consideration on June 22. As reported from conference, H.R. 4516 contained a 2.1%
increase, to $2.527 billion in FY2001 from $2.475 billion in FY2000.
The legislative branch budget is 0.15% of the total federal budget.
Flat Budget. A “flat” budget typically provides new funds for mandatory cost
increases, but denies additional funding requests.16 A flat budget can be difficult to
achieve due to a number of factors, such as ongoing and emergency maintenance and
repair needs or an effort to keep operations current with recent technology
developments. The FY2001 budget of $2.527 billion, as reported from conference
in H.R. 4516, represented a flat budget, compared with $2.475 billion appropriated
for FY2000 at that time.
This follows the trend of FY1999 and FY1998. The FY1999 regular annual
Legislative Branch Appropriations Act (P.L. 105-275), without the emergency
supplementals, contained a 2.8% increase over FY1998, to $2.352 billion from
$2.288 billion (both figures in current dollars). The rate of inflation for the
comparable period of time was 2.2%.
When including the FY1999 emergency supplementals, the FY1999 increase was
higher, 12.8%, to $2.581 billion in FY1999 from $2.288 billion in FY1998. Allowing
for inflation, the increase was 10.5%.
In the previous year, conferees on the FY1998 legislative funding bill also
approved a fairly flat budget, or a 3.9% increase based on current dollars, to $2.288
billion in FY1998 from $2.203 billion in FY1997. Allowing for inflation, the FY1998
conference figure was actually a 2.2% increase, to $2.391 billion in FY1998 from
$2.340 billion in FY1997 (in constant 1999 dollars).
Modest Increase. When including the FY1999 emergency supplemental
appropriations in P.L. 105-277, the FY1999 total appropriation allowed for a modest
increase, to $2.581 billion from $2.288 billion in FY1998, or a 12.9% increase. The
emergency supplemental contained funds for security systems, a Capitol visitors’
center, and Year-2000 compliance of software and other computer changes.
Budget Decrease. In FY1996 and FY2000, Congress reduced the legislative
budget. For FY1996, Congress approved a budget that was an 8.2% reduction from
the previous year. The FY1996 budget was $2.184 billion, down from the FY1995
16Mandatory costs are those required by statute. They include such items as annual pay
adjustments and increases in the federal government’s contribution to the federal employee
retirement program.
budget of $2.378 billion. When accounting for inflation, the decrease was more,
The FY2000 appropriation of $2.475 billion (enacted at the time of the
conference report on H.R. 4516) was a 4.1% reduction from the FY1999
appropriation of $2.581 billion. Allowing for inflation, the decrease was more, 6.3%.
Figure 2. Legislative BranchFigure 3. Legislative Branch
Appropriations, FY1995-Appropriations, FY1995-
FY2000FY2000
Technology Issues
Security of Legislative Information. The House Appropriations
Committee report on the FY2001 bill contained language expressing its concern for
the security of electronically formatted legislative information. The House directed
the clerk of the House, in consultation with the secretary of the Senate, to meet with
legislative entities that electronically create or store legislative information, to prepare
information security standards and procedures for these entities, and to establish a
process to routinely evaluate security risks.
The clerk was required to submit proposed standards and procedures to the
Committee on House Administration and the Senate Committee on Rules and
Administration for approval. Upon approval, the clerk’s plans were to be submitted
to the House and Senate Appropriations Committees.
The Library of Congress and the Government Printing Office are directed to
“work with the clerk and secretary of the Senate to test, develop, and implement, no
later than January 3, 2001, systems that will enable them to confirm the authenticity17
of such legislative information.”
17U.S. Congress, House Committee on Appropriations, Legislative Branch Appropriations
Bill, 2001, report to accompany H.R. 4516, 106th Cong., 2nd sess., H.Rept. 106-635
(Washington: U.S. Govt. Print. Off., 2000), p. 8.
House and Senate Legislative Information Systems. Both houses
continued to seek ways to reduce duplication of effort in tracking legislation and to
upgrade legislative tracking and document management systems. Toward this end,
both houses continue to develop information systems that create and manage
legislative data files.
The House legislative information system is administered by the House clerk.
The Senate system is administered by the secretary of the Senate. They report,
respectively, to the House Administration Committee (formerly House Oversight) and
the Senate Committee on Rules and Administration on their recommendations
regarding the electronic transfer of legislative data between the two houses and
among other legislative branch entities.
In support of the development of the House and Senate legislative information
systems, both houses directed the Congressional Research Service in 1996 to develop
a data retrieval system with the technical support of the Library of Congress and in
collaboration with other legislative branch agencies, such as the Government Printing
Office.18 The House and Senate legislative information systems are expected to
reduce duplication through the consolidation of existing legislative retrieval systems.
House System. In FY1996, the Committee on House Administration
(formerly House Oversight) directed the clerk to study methods for increasing the
capacity of the House to manage its documents electronically. The committee further
directed that subsequent proposals of the clerk relating to printing be coordinated
with GPO and all House entities requiring printing and storage of documents.
The clerk of the House requested $750,000 for FY2001 to continue development
of the House document management system (DMS), which would provide a method
for creating, tracking, editing, sharing, printing, and transmitting documents. Identical
appropriations were made for the DMS in FY1998 and FY1999. According to the
clerk, the goals of the DMS are “to improve the legislative document creation and
revision process; to provide pro-active tracking, routing, and control of legislative
documents; to improve information exchange with the Senate and other government
entities in order to facilitate the legislative process; to enable the Office of the Clerk
to become the repository for House legislation and related documents for current and
future use, for the general public, legislative organizations, and the House of
Representatives; [and] to allow the House of Representatives to become more
independent for preparation, printing, and distribution of official House of
Representatives documents.”19
18In the FY1997 legislative branch appropriations bill, the Senate directed CRS and the
Library to develop a retrieval system. The language was contained in an amendment that was
deleted from the legislation, but maintained in the conference report. Subsequent to passage
of the FY1997 bill, the chairman of the House Administration Committee (formerly House
Oversight) directed CRS and the Library to ensure that the retrieval system being developed
for the Senate would also meet the requirements of the House. The chairman’s directive was
contained in a letter to the CRS director dated Oct. 9, 1996.
19Testimony of the clerk of the House, Jeff Trandahl, before the House Subcommittee on
(continued...)
The DMS is designed to automate document preparation, using a system for
print-on-demand and for electronic transmission to GPO. Although development of
the DMS is costly, anticipated savings to the House in administrative and printing20
costs were estimated to be about $1 million annually.
Senate System. The FY1997 Legislative Branch Appropriations Act directed
the secretary of the Senate to develop a legislative information system for the
Senate.21 The act directed that the secretary oversee the system’s development and
implementation, subject to the approval of the Senate Committee on Rules and
Administration. Like the House, the Senate system provides a means for creating,
tracking, editing, sharing, and transmitting documents.
The FY1997 Legislative Branch Appropriations Act funded the Senate system
by authorizing the secretary to use unspent FY1995 monies previously appropriated
for the Office of the Secretary of the Senate; they remained available until September
30, 1998. The secretary was also authorized to transfer to the development of the
legislative information system, as he determined to be necessary, funds already
appropriated to the secretary’s office for the purpose of development of the Senate
financial management system.
Access to additional funding was provided in the FY1997 supplemental
appropriations bill signed into law (P.L. 105-18; H.R. 1871) on June 12, 1997. That
act authorized the transfer of $5 million from other Senate accounts to the account,
“Contingent Expenses of the Senate,” under the subaccount, “Secretary of the
Senate.”22 That money was made available through September 30, 2000. The
transfer was made subject to the approval of the Senate Committee on
Appropriations.
The FY1999 Senate report on S. 2137 also contained language directing the
Congressional Research Service and the Library “to continue their development of the
19(...continued)
Legislative, Legislative Branch Appropriations for FY2000, hearings, Feb. 2, 1999, pp. 34-
20Comments of the former clerk of the House, Robin Carle. U.S. Congress, House Committee
on Appropriations, Subcommittee on Legislative, Legislative Branch Appropriations forthst
FY1998, hearing, 105 Cong., 1 sess., Feb. 4, 1997. See also the clerk’s testimony on the
DMS before the House Subcommittee on Legislative, Legislative Branch Appropriations for
21P.L. 104-197, 110 Stat. 2398, Sept. 16, 1996, sec. 8, FY1996 Legislative Branch
Appropriations Act.
22For language in H.R. 1871 that is relevant to the legislative branch, see Rep. Robert
Livingston, remarks in the House, Congressional Record, daily edition, vol. 143, June 12,
1997, p. H3766. This provision was originally included in the earlier version of the FY1997
supplemental bill, H.R. 1469, which was vetoed by the President on June 9, 1997.
legislative retrieval system for the Senate and provide an annual report outlining the
strategic objective of this initiative.”23
Fire Safety in Congressional Buildings
In July 2000, Congress approved an FY2000 supplemental of $17.5 million to
the Architect of the Capitol for fire safety in the Capitol and other congressional
buildings. Conferees on the FY2001 military construction appropriations bill (H.R.
4425) added the supplemental to the bill, which was signed into law by the President
on July 13 (P.L. 106-246). Congress made the appropriation subsequent to the
release of a report by the Office of Compliance which identified 253 possible fire
safety hazards or violations in Capitol Hill buildings.
Earlier, both houses had approved FY2000 fire safety supplemental
appropriations in separate bills. First, the House passed H.R. 3908, an FY2000
supplemental appropriation bill, on March 30 containing $15.2 million for fire safety.
Second, although the Senate delayed further action on H.R. 3908, the Senate added
the House language, plus $2.3 million for fire safety upgrades in Senate office
buildings, to S. 2536, the FY2001 agriculture, rural development, food and drug
administration, and related agencies appropriations bill. As reported (S.Rept. 106-
288), S. 2536 contained $17.5 million for fire safety upgrades. This appropriation
was dropped from S. 2536 with conferees on the FY2001 military construction
appropriations bill agreeing to add the funding to their bill.
House and Senate Committee Funding
House Committee Funding. The FY2001 request for committee operations
was $121.8 million, an increase of $6.8 million, or 5.9%, over the FY2000 funding
level of $115.0 million. The appropriation is contained in the appropriations heading
“committee employees” that comprises two subheadings. The first subheading
contains funds for personnel and non-personnel expenses of House committees,
except the Appropriations Committee, as authorized by the House in a committee
expense resolution. The request for this subheading was $99.2 million, which was an
increase of $5.4 million, or 5.7%, over the FY2000 funding level of $93.9 million. The
conference on H.R. 4516 contained $92.2 million, a reduction from FY2000 of 1.8%,
or $1.7 million.
The second subheading contains funds for the personnel and non-personnel
expenses of the Committee on Appropriations. The FY2001 request was $22.5
million, an increase of $1.4 million, or 6.8%, over the FY2000 level of $21.1 million.
The conference on H.R. 4516 contained $20.6 million, a decrease of 2.2%, or
$467,000.
Most of the requested increase for both subheadings was for personnel expenses
pursuant to the January 2000 pay increase of 3.7%, and price level increases. The
23U.S. Congress, Senate Committee on Appropriations, Subcommittee on Legislative Branch,
Legislative Branch Appropriations, 1999, report to accompany S. 2137, 105th Cong., 2nd
sess., S.Rept. 105-204 (Washington: U.S. Govt. Print. Off., 1999), p. 41.
increase for House committees, other than Appropriations, was also to pay expenses
for use of cell phones and pagers, use of which is growing, and to meet expenses
incurred in providing greater flexibility by allowing staff to use their residential lines
for official business, with reimbursement to them by the House. The Appropriations
Committee request included funds for equipment and additional travel.
Senate Committee Funding. S. 2603 contained $79.9 million for Senate
committees in FY2001, a 2.3% increase from $78.1 million in FY2000. The FY2001
appropriation is a total of committee appropriations contained in two separate Senate
accounts. The first account is the Senate “Committee on Appropriations;” the second
is “Inquiries and Investigations,” which contains funds for all other Senate
committees. The FY2001 appropriation for the Senate Appropriations Committee
was $6.9 million, an increase of $392,000, or 6%, over the FY2000 level of $6.5
million. The FY2001 appropriation for all other Senate committees was $73.0
million, an increase of $1.4 million, or 2.0%, over the FY2000 appropriation of $71.6
million.
Security Issues
Capitol Complex Security Plan. The Office of the Architect of the Capitol
(AOC) continued to develop a perimeter security plan for the Capitol, the Senate and
House office buildings, and adjacent grounds. Congress approved $20 million for the
perimeter plan as part of an FY1998 supplemental appropriations bill (P.L. 105-174).
The relevant provision of the law reads:
For necessary expenses for the design, installation and maintenance of the Capitol
Square Perimeter Security Plan, $20,000,000 (of which not to exceed $4,000,000
shall be transferred upon request of the Capitol Police Board to the Capitol Police
Board, “Capitol Police,” “General Expenses,” for physical security measures
associated with the Capitol Square perimeter security plan) to remain available
until expended, subject to the review and approval by the appropriate House and24
Senate authorities.
The appropriation for the perimeter security plan was based on recommendations
that a task force prepared for the U.S. Capitol Police Board. Of the $20 million, $4
million was made available to the Capitol Police Board for the design and installation
of security systems that were to be part of the perimeter plan. The perimeter security
plan has been approved by the four oversight and funding committees that
responsible for its implementation.
24P.L. 105-174, 112 Stat. 89, May 1, 1998, Making Emergency Supplemental Appropriations
for FY1998. See also U.S. Congress, House Committee on Appropriations, Making
Supplemental Appropriations and Rescissions for the Fiscal Year Ending September 30,thnd
GPO, 1998), pp. 11-12, and U.S. Congress, Senate Committee on Appropriations, Making
Emergency Supplemental Appropriations for Recovery from Natural Disasters, and for
Overseas Peacekeeping Efforts, for the Fiscal Year Ending September 30, 1998, report tothnd
accompany S. 1768, 105 Cong., 2 sess., S.Rept. 105-168 (Washington: GPO, 1998), p.
Other Security Activities of the Capitol Police. Several current Capitol
Police security projects are the result of a comprehensive security survey of the
Capitol complex conducted by a task force in 1998. The task force was composed
of security experts from five federal law enforcement agencies. Pursuant to the
findings of the task force, the Capitol Police requested and received funding for 260
additional police officers and other personnel (including 215 authorized officers),
upgraded police equipment, and new security technology.25 For FY2001, the Capitol
Police requested an additional 100 police officers in their FY2001 request to
implement the task force recommendations.
In 1999, the Capitol Police Board and the police department developed a
“Strategic Plan for the U.S. Capitol Police,” primarily dealing with financial
management of the police. The police requested funding for the first phase of the plan
in the FY2001 bill. Additionally, the Architect of the Capitol, who was directed to
study the facility needs of the Capitol Police, developed a master plan, which
addresses major issues of police training facilities, a vehicle maintenance facility, and
an off-site delivery center.
Funding for the Capitol Police Board. Conferees on H.R. 4516 agreed
to $103.9 million for the Capitol Police Board, revised to $103.8 million pursuant to
a rescission of 0.22%. The revised appropriation represents an increase of 22.3%, or
$18.9 million, from the FY2000 funding level of $84.9 million.26 This increase funded
1,481 FTEs, which was the number recommended by the Senate, and conferees
directed that the Chief of Police obtain approval of the House and Senate Committees
on Appropriations before filling positions above an FTE level of 1,402. Conferees
also stated that they “intend that sufficient resources be allocated to implement the
‘two officers per door’ policy,” and required the Capitol Police Board to study the
requirements of each post and report to the House and Senate Appropriations
Committee. The study and report were to be made before the Chief of Police could
hire any employees over an FTE level of 1,402.
Conferees retained a House provision that created a new Office of
Administration within the Capitol Police directed by a chief administrative officer
(CAO) to be appointed by the comptroller general, after consultation with the Capitol
Police Board. The CAO would be an employee of the General Accounting Office
until October 1, 2002, when he would become an employee of the Capitol Police.
Conferees dropped a provision (section 310 of S. 2603) which contained
administrative language transferring uniformed officers of the Library of Congress
and Government Printing Office to the Capitol Police, effective October 1, 2000.
Prior to the transfer, the General Accounting Office was to identity issues to be
addressed before the transfer; the agency was to report its findings to the Senate
Appropriations Committee and the Capitol Police Board by July 1, 2000.
25Testimony of the sergeant at arms of the Senate, James W. Ziglar, before the House
Subcommittee on Legislative, Legislative Branch Appropriations for FY2000, hearings, Feb.
26The FY2000 figure is the regular annual appropriation, and does not include a $2.1 million
security enforcement supplemental appropriation contained in P.L. 106-544.
The FY2001 request for the board was $110.9 million, an increase of $26
million, or 31%, over FY2000. Most of the requested increase was to fund 100 new
FTE27 police officers in FY2001, and to continue to fund the additional 260 FTEs28
(police officers and other personnel) hired in FY1999 and FY2000. The total
number of FTEs would increase to 1,611 from 1,511, which would allow the Capitol
Police Board to staff each congressional entrance with two officers. The increased
funds would allow the board to continue implementation of its strategic plan for
training and other security enhancement programs.
The House bill, as reported, contained $76.7 million, a reduction of 9.7%, or
$8.2 million, from the FY2000 level of $84.9 million, excluding a pending
supplemental Capitol Police appropriation of $1.9 million for Library of Congress
security. However, an amendment adopted on the House floor contained an
additional $22.7 million, increasing the FY2001 appropriation to $99.3 million.
The Senate bill contained $109.6 million, an increase of $24.7 million, or 29.1%
over the FY2000 appropriation of $84.9 million.
Funds for the Capitol Police Board are contained under two headings, “Capitol
Police salaries,” and “Capitol Police, general expenses.” For Capitol Police salaries,
the request was $106.0 million, an increase of $27.7 million,29 or 35.4%, over the
FY2000 appropriation of $78.4 million. The House bill contained $92.8 million; the
Senate bill contained $102.7 million. Conferees agreed to $97.1 million.
For Capitol Police general expenses, $10.0 million was requested. This was an
increase of $3.4 million, or 52.1%, over the FY2000 appropriation of $6.6 million.
The House bill contained $6.6 million; the Senate bill contained $6.9 million.
Conferees agreed to $6.8 million.
The accompanying House report language –
!Appropriated $4 million for overtime, equally divided between the House and
Senate police details.
!Appropriated for 1,058 FTEs, 506 for the House and 552 for the Senate.
!Directed a policy shift by the Capitol Police from emphasis on manpower to
security technology.
!Created a new Office of Administration within the Capitol Police directed by
a chief administrative officer (CAO) to be appointed by the comptroller
general, after consultation with the Capitol Police Board. The CAO would be
27FTE stands for full-time equivalent employee position. An FTE is determined by dividing
the total number of hours worked by the number of hours in a work year (2,080 ).
28In FY2000, $16.5 million was transferred to the Capitol Police from the security
enhancement fund, established pursuant to P.L. 105-277.
29The figure contains $8.0 million in a pending amended request for overtime expenses.
an employee of the General Accounting Office until October 1, 2002, when he
would become an employee of the Capitol Police. Upon transfer, the Capitol
Police Board would assume the responsibilities previously held by the
comptroller general. This language was changed in the conference report on
H.R. 4475, the FY2001 Department of Transportation appropriations bill, to
place the CAO under jurisdiction of the U.S. Capitol Police.
!Encouraged the Capitol Police to study the possible use of eye-view security
technology, which permits real time surveillance and monitoring over the
Internet through secure connections.
Administration of Security Enhancement Money. Besides administering
funds from annual appropriations, the Capitol Police are responsible for administering
the security enhancements fund and the physical security fund, both established for
specific purposes. Transfer of money from either fund to the Capitol Police Board is
subject to the approval of the police oversight and appropriations committees.
Activities are coordinated by a memorandum of understanding among the Capitol
Police, the Office of the Architect of the Capitol, and the Library of Congress.
Recent Appropriations for Security Enhancements. In FY1997, the
Capitol Police Board received $3.25 million for the “design and installation of security
systems for the Capitol buildings and grounds,” and the Architect was given $250,000
for “architectural and engineering services related to the design and installation” of30
those systems.
In addition, the FY1999 Omnibus Appropriations Act (P.L. 105-277) contained
$106.8 million for the board to make “security enhancements to the Capitol complex,31
including the buildings and grounds of the Library of Congress.” The accompanying
conference report (H.Rept. 105-825) identified 22 specific categories of priority
security needs. The Omnibus Appropriations Act also transferred responsibility for
the design, installation, and maintenance of the Library of Congress security system32
from the Architect of the Capitol to the Capitol Police Board.
The supplemental allocations resulted from (1) a broad review of the existing
security program by the Capitol Police, with assistance from other federal security
agencies and private consultants. There were also hearings and discussions with
congressional leaders, as well as the committees of jurisdiction; and (2) a personnel
30P.L. 104-208; 110 Stat. 3009-510-511.
31P.L. 105-277; 112 Stat. 2681-570. The enhancements are subject to approval by the
Committee on House Administration, Senate Committee on Rules and Administration, and
House and Senate Committees on Appropriations.
32U.S. Congress, Conference Committee, Making Omnibus Consolidated and Emergency
Supplemental Appropriations for Fiscal Year 1999, conference report to accompany H.R.thnd
pp. 1530-1531. (Hereafter cited as H.Rept. 105-825). The conference agreement included
funds for 260 additional Capitol Police personnel over a 2-year period, and $12 million for
overtime pay.
audit of security operations of the police. As a result of these and other studies, a
comprehensive 10-year Capitol Police master plan was issued in August 1999.
Congress appropriated an FY1999 emergency supplemental appropriation for
the Capitol Police Board as a result of recommendations for security upgrades made
pursuant to a comprehensive security study of the Capitol complex. The Capitol
Police Board mandated the study in 1998 by a task force composed of security
experts from federal law enforcement agencies and the private sector.
Language in the FY1999 emergency supplemental appropriation directed the
Capitol Police Board to prepare an implementation plan for the use of the emergency
supplemental to include necessary equipment upgrades and detailing the first phase
of the security enhancements to the Capitol complex and Library of Congress
buildings and grounds. The Capitol Police Board prepared a security enhancement
implementation plan, now pending before the authorizing and appropriations
committees. Parts of the plan have already been approved.
For FY2000, Congress appropriated a supplemental of $2.1 million to the
Capitol Police Board for security enhancements contained in P.L. 106-554.
Capitol Visitors’ Center. Although the FY2001 legislative budget request
does not contain funds for a proposed Capitol visitors’ center, several references were
made to the center’s development during House and Senate hearings on the FY2001
budget.
Current Status. Congressional leadership broke ground for the center on June
expected to be completed by December 2004.
Appropriations and Other Funds Available. The current estimated cost
of the center is $265.6 million.35 Congress agreed to an FY1999 emergency
supplemental appropriation of $100 million to the architect “for planning, engineering,
design, and construction” of a Capitol visitors’ center. The funding was added in the
conference on H.R. 4328, the FY1999 Omnibus Consolidated and Emergency
Supplemental Appropriations Act (P.L. 105-277).
The conference report on H.R. 4328 stipulated that appropriated funds for the
project are to be supplemented by private funds, and the clerk of the House and the
secretary of the Senate were directed by the Capitol Preservation Commission to
develop a fund-raising plan. The clerk and secretary presented a plan on February 9,
33Ben Pershing, “Leaders Break New Ground: Actual Visitors Center Construction to Start
in 2001,” Roll Call, June 22, 2000, pp. 1, 33.
34Testimony of the Architect of the Capitol, Alan Hantman, U.S. Congress, House Committee
on Appropriations, Subcommittee on Legislative, Legislative Branch Appropriations forthnd
FY2001, hearings, 106 Con., 2 sess., Feb. 1, 2000, p.361.
35Testimony of the Architect of the Capitol, U.S. Congress, House Committee on
Appropriations, Subcommittee on Legislative, Legislative Branch Appropriations for FY2001,thnd
hearings, 106 Cong., 2 sess., Feb. 1, 2000, p. 360.
2000, which the commission accepted, to authorize the Pew Charitable Trusts to
establish a nonprofit 501(c)(3) foundation to seek private funds. The target for the
foundation is $100,000.36
In addition, $26.6 million in Capitol Preservation Commission funds are
reportedly available for the center;37 other funds will be available through the sale of
a recently approved commemorative coin program marking the 200th anniversary of38
the convening of Congress in the Capitol.
Discussions During FY2000 Hearings. The issue was also discussed
during House and Senate hearings on the FY2000 budget of the Office of the
Architect of the Capitol; several subcommittee members urged the architect to move
expeditiously to construct a Capitol visitors’ center. A sponsor of earlier legislation
authorizing construction of the center, Representative John Mica, also spoke before
the House subcommittee in favor of the project. He stated that “my concern is that
this project may now be delayed, unduly putting off construction unnecessarily and39
adding costs to the project.”
Architect of the Capitol Issues
Architect of the Capitol Appropriation for FY2001. Conferees on H.R.
4516 agreed to $201.2 million for all activities of the Architect of the Capitol. When
adding supplementals and adjusting for a 0.22% rescission, the total FY2001 figure
is $210.9 million. This figure represents a decrease of 9.6%, or $22.4 million, from
the FY2000 level of $233.3 million. The FY2001 budget proposal was $247.2
million.
H.R. 4516, as passed by the House, contained $137.2 million for the Architect
in Title I and Title II, excluding funds for Senate office buildings in Title I.40 The
appropriation was a decrease of 13.3%, or $21 million, from the FY2000 funding
level of $158.2 million. Previously, the House Committee on Appropriations reported
$129.9 million, a decrease of 17.9% from the FY2000 appropriation of $158.2 million
(excluding Senate items).
The Senate bill, S. 2603, as passed, contained $169.6 million, a decrease of
36Testimony of the secretary of the Senate, Gary Sisco. U.S. Congress, Senate Committee on
Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for
FY2001, hearings, 106th Cong., 1st sess., March 21, 2000 (not yet printed).
37Testimony of the secretary of the Senate, Gary Sisco, before the Senate Subcommittee on
Legislative Branch, Legislative Branch Appropriations for FY2000, hearings, March 24,
38P.L. 106-57; 113 Stat. 427.
39Statement of Rep. John Mica, before the House Subcommittee on Legislative, Legislative
Branch Appropriations for FY2000, hearings, Feb. 10, 1999, p. 795.
40The House does not consider funds for Senate activities.
During consideration of the FY2001 budget, Congress approved FY2000
supplemental appropriations of $17.5 million for fire safety, contained in P.L. 106-
Appropriation Accounts of the Office of the Architect of the Capitol
in the Annual Legislative Branch Appropriations Bill. The Office of the
Architect of the Capitol’s budget is contained in two places in a legislative branch
appropriations bill, in Titles I and II. Title I contains funds for the Capitol buildings
and grounds, the Senate office buildings, the House office buildings, and the Capitol
power plant. Occasionally, funds for special projects are included in Title I. For
example, in the FY1999 legislative branch appropriations act, Title I also contained41
the emergency supplemental of $100 million for a Capitol visitors’ center.
For Title I, the House and Senate consider separate requests because the House
budget request does not include Senate office building funds (which are determined
by the Senate), and the Senate budget request does not include House office building
funds (determined by the House). For FY2001, the total Title I budget request,
including funds for House and Senate office buildings, was $226.9 million, a $36
million increase, or 18.9%, over the FY2000 appropriation of $190.9 million.
Conferees on H.R. 4516 agreed to $185.2 million for Title I activities.
The House bill, as reported, contained $114.8 million in Title I, excluding Senate
items. This was a reduction of 17.1%, or $23.6 million, from the FY2000
appropriation of $138.4 million, excluding Senate items and including pending
supplemental appropriations. As passed, the House bill contained $121.4 million for
Title I.
The Senate bill contained $153.2 million in Title I, excluding House items, a
reduction of 0.4% from the FY2000 appropriation of $153.8 million, excluding House
items and pending supplemental appropriations.
Title II contains funds for the architect to maintain the buildings and grounds of
the Library of Congress (LOC). From time to time, other projects of the architect are
funded in Title II. For example, the FY1999 legislative branch appropriations act
contained a one-time appropriation of $1 million for the congressional cemetery in
Title II.
For Title II activities conferees agreed to $16.0 million.
The FY2001 budget request for Title II activities was $20.3 million, an increase
of $4.3 million, or 27%, over the appropriation of $16 million in FY2000. For Title
II activities, the House bill, as reported, contained $15.1 million, a reduction of $4.7
41Congress provided the additional funding “for planning, engineering, design, and
construction of a Capitol visitor center.” The architect is “directed not to expend any funds
for this project without an obligation plan approved by the House and Senate Committees on
Appropriations which shall specify the purpose and amount of anticipated obligations.”
million, or 23.8%, from the FY2000 appropriation of $19.9 million, including
appropriations pending in the FY2000 supplemental, H.R. 3908. As passed, the
House bill contained $15.8 million in Title II. S. 2603 contained $16.3 million, a
Title II also contains funds for the Botanic Garden, which are administered by
the architect. In the legislative branch appropriations bill, funds for the Botanic
Garden are contained in a separate account; for purposes of this report, they are not
included within funding of the Office of the Architect of the Capitol.
Figure 4. Appropriations forFigure 5. Appropriations for
the Architect, FY1995-FY2000the Architect, FY1995-FY2000
Botanic Garden. Conferees agreed to $3.3 million. The FY2001 request of
$4.9 million was an increase of $1.5 million, or 4.4%, over the FY2000 appropriation
of $3.4 million. The request contained $200,000 for the design of the renovation and
addition to the garden’s administrative building. The House bill, as reported and
passed, contained $3.2 million, a reduction of $222,000, or 6.5%, from the FY2000
level of $3.4 million, including appropriations in the pending supplemental, H.R.
Funds were not requested for FY2001 for renovation of the conservatory, to be
completed in September 2000. Most of the renovation funds were made available in
the FY1997 Legislative Branch Appropriations Act (P.L. 104-197). A contract for
renovation was awarded in September 1998, with the architect authorized to award42
contracts for additional garden projects if additional funds were available. A
privately funded national garden, a new addition to the Botanic Garden, will be
located next to the conservatory.
Support Agency Funding
Congressional Budget Office Budget. Conferees on H.R. 4516 agreed
to $28.5 million for the Congressional Budget Office (CBO), which was the same
amount requested by CBO’s director. The appropriation subsequently was adjusted
42Ibid.
to $28.4 million, pursuant to a 0.22% rescission. The FY2001 appropriation was an
increase of $2.3 million, or 9.0%, over the FY2000 appropriation of $26.1 million.
In his testimony before the Senate Subcommittee on Legislative Branch, the director
said the increase was “largely necessitated by our need to compensate for a significant
funding shortfall in 2000 - our appropriation increase for fiscal year 2000 was only 1.8
percent, or $450,000.”43 He stated that the $450,000 increase was less than the $1.5
million necessary to meet additional expenses of pay and benefits for its 232 FTEs,44
noting that the number of staff on payroll was 225.
The additional FY2001 funds will also pay for mandatory pay and benefit
increases in FY200l, for enhanced computer technology ($588,000), and for expenses
of an increased workload, including a number of congressionally mandated reports
and studies.
The director also expressed concern about the ability of CBO to offer the salaries
necessary to attract and retain staff, noting that there was a loss of “very good
analysts and managers in 1999,” and that he expects “a significant number of senior
staff to retire in the next 12 months.” Approximately half of CBO managers and more
than half of its top executive are currently eligible to retire, with several others45
becoming eligible to retire in the next three years.
Figure 6. Appropriations forFigure 7. Appropriations for
CBO, FY1995-FY2000CBO, FY1995-FY2000
H.R. 4516, as reported, contained a $1.0 million, or 3.9%, reduction to $25.1
million from $26.1 million in FY2000. As passed, H.R. 4516 contained $27.4 million,
an increase of 4.9%, or $1.3 million. S. 2603 contained $992,000, a 3.8% increase
to $27.1 million.
43Remarks of the director of CBO, Dan Crippen, before the Senate Subcommittee on
Legislative Branch, Legislative Appropriations for FY2001, hearing, Feb. 8, 2000 (not yet
printed).
44FTE stands for full-time equivalent employee position. An FTE is determined by dividing
the total number of hours worked by the number of hours in a work year (2,080 ).
45Ibid.
General Accounting Office Budget. Conferees on H.R. 4516 agreed to
$384.9 million for the General Accounting Office (GAO), which was subsequently
reduced to $384.0 million, pursuant to a 0.22% rescission. This was an increase of
$6.4 million, or 1.7%, over the FY2000 funding level of $377.6 million. The FY2001
budget request of the General Accounting Office (GAO) was $399.9 million,46 an
increase of $22.4 million, or 5.9%, over the FY2000 appropriation of $377.6
million.47 Seventy-three percent of the increase, or $16.3 million, was requested for
mandatory pay and related personnel costs.
In his testimony before the Senate Subcommittee on Legislative Branch, the
Comptroller General said that major initiatives in the FY2001 budget were in the area
of human resources.48 He noted that the FY2001 budget request maintains the
FY2000 FTE level of 3,275 (estimate), and that GAO would continue to use existing
staff resources before requesting additional personnel. Funds requested would allow
GAO to provide staff with enhanced training and rewards in line with those given in
the executive branch. In order to make the best use of existing staff, GAO is currently
revising its performance appraisal system in developing a new system for its
evaluators to assist in retaining existing staff. He also said that GAO was “sparse” at
the entry level due to the five-year freeze on hiring and downsizing since 1992.
The comptroller general discussed his request for legislative authority to allow
the agency greater flexibility in personnel matters, including the ability to offer early-
outs to selected individuals, to apply reductions-in-force so as to prevent an
unbalanced workforce, and, in order to attract and retain staff, to compensate selected
scientific and technical personnel at senior executive pay levels.
In his prepared testimony, the Comptroller General cited staff succession as a
major issue, noting the percentages of staff eligible to retire by the end of FY2004
(September 30, 2003). Those eligible will be 34% of evaluators and related staff,
H.R. 4516, as reported, reduced the budget of GAO by $26 million, or 6.9%, to
$351.5 million in FY2001 from $377.6 million in FY2000. The Appropriations
Committee included language in the report that the level of FY2001 funding “support
2,698 FTEs, a decrease of 577 below the number currently expected to be utilized in
fiscal 2000.”49
As passed, H.R. 4516 contained $368.9 million, a decrease of 2.3%, or $8.7
million.
46This figure does not include $3 million available to GAO from collections.
47This figure does not include $1.4 million available to GAO from collections.
48Testimony of Comptroller General of the United States David Walker, before the Senate
Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2001,
hearing, Feb. 29, 2000 (not yet published).
49House report, FY2001, p. 29.
S. 2603 contained an increase of $7.3 million, or 1.9%, to $384.9 million from
$377.6 million.
Figure 8. Appropriations forFigure 9. Appropriations for
GAO, FY1995-FY2000GAO, FY1995-FY2000
Library of Congress Budget. The budget of the Library of Congress is
included in both Title I and Title II of the legislative appropriations bill. Title I
contains funds for the Congressional Research Service (CRS); Title II contains funds
for all other activities of the Library of Congress.
Conferees on H.R. 4516 agreed to an FY2001 funding level of $412.3 million,
an increase of 4.6%, or $18.0 million, over the FY2000 level of $394.4 million.50
Pursuant to a supplemental of $100 million for the digital preservation program and
a 0.22% rescission, the revised FY2001 appropriation is $511.1 million.
Appropriations for the Library, excluding CRS, are $437.7 million; the CRS
appropriation is $73.4 million.
The FY2001 budget request for activities of the Library of Congress in both
titles was $428.1 million, an 8.6% increase of $33.7 million from the FY2000
appropriation of $394.4 million.51 Almost half of the increase, or $16.6 million, was
to meet mandatory pay and related personnel costs, and price increases for goods and
services.
Most of the remaining net increase of $27.1 million was to meet the costs of
workload increases related to support for the digital futures initiative to create the
National On-Line Library ($21.3 million); for additional domestic and international
digital content ($7.6 million); for storage, maintenance, and preservation of
collections ($3.2 million); for enhanced security of collections and facilities ($7
million); and for other activities. While increases total more than $27.1 million, they
50The figure for FY2000 is the regular annual appropriations and does not include $10 million
appropriated for the Russian leadership program of the Library of Congress contained in P.L.
51The FY2000 figure does not include an FY2000 supplemental appropriation of $10 million
for the Library of Congress’ Russian leadership program.
were offset by decreases and savings in other areas – for example, savings of $2
million by the integrated library system and completion of funding for other programs.
Another concern of the Librarian during his FY2001 budget testimony was
continuation of a staff succession program. A recent risk assessment study of the
Library’s workforce showed that almost 45% of employees will be eligible to retire
in 2004. The FY2001 request contained $2.6 million for the plan, including
development of a recruitment program and establishment of an internal career
enhancement plan.
The Librarian requested an increase of 192 FTE positions, increasing staff to
4,268 from 4,076, which is 6.0% lower than the Library’s staff in 1992. The primary
need for additional staff is to meet a significantly increased internet activity workload.
Library of Congress, Except CRS (in Title II). Conferees on H.R. 4516
agreed to $338.7 million for FY2001 for the Library of Congress, except the
Congressional Research Service. The appropriation represented an increase of $15.4
million, or 4.8%, over the FY2000 appropriation of $323.4 million.
Both the FY2001 and FY2000 figures were subsequently adjusted to reflect
supplementals and rescissions. When accounting for these adjustments, the FY2000
figure was adjusted to $394.4 million and the FY2001 figure to $437.7 million. The
increase was $43.3 million, or 11.0%.
The Title II budget request was $352.5 million, an increase of $29.1 million, or
9.0%, above the FY2000 appropriation. H.R. 4516 contained $323.9 million, an
increase of $523,000, or 0.2%, over FY2001. S. 2603 contained a 0.7% increase to
$325.6 million.
Figure 10. Appropriations forFigure 11. Appropriations for
LOC, Excluding CRS, LOC, Excluding CRS,
FY1995-FY2000 FY1995-FY2000
Congressional Research Service (in Title I). Conferees on H.R. 4516
agreed to $73.6 million for the Congressional Research Service (CRS), revised to
$73.4 million, pursuant to a rescission of 0.22%. The FY2001 funding level
represents an increase of $2.5 million, or 3.5%, from the FY2000 level of $71 million.
The FY2001 Title II request was $75.6 million, an increase of $4.7 million, or 6.6%,
from the FY2000 funding level of $71.0 million. Most of the request, or 72.7%, was
to fund mandatory pay and related personnel costs, and increases in prices due to
inflation. The remaining $1.1 million was to fund the third year of the staff succession
program. Of this amount, $860,045 was to fund the program in FY2001, and
$279,727 to restore positions lost in the FY2000 rescission. Approximately half of
all CRS staff will be eligible to retire by 2006.
H.R. 4516, as reported, reduced the budget of CRS by 6.7%, or $4.8 million, to
$66.2 million from the FY2000 appropriation of $70.97 million. It was estimated that
CRS staff would have been reduced by 114 FTE positions in FY2001.
As passed, H.R. 4516 contained $73.8 million, an increase of $2.8 million, or
4.0%. The Senate bill, S. 2603, contained $73.4 million, an increase of 3.4%, or $2.4
million.
Figure 12. Appropriations forFigure 13. Appropriations for
CRS, FY1995-FY2000CRS, FY1995-FY2000
Government Printing Office (GPO) Budget. Conferees on H.R. 4516
agreed to $99.4 million for the Government Printing Office, revised to $99.2 million,
pursuant to a 0.22% rescission. The FY2001 funding level is a decrease of 3.9%, or
$4 million, from the FY2000 appropriation of $103.2 million. The FY2001 request
was $121.3 million, an increase of $18.1 million, or 17.5%, over FY2000. The
primary reasons the Public Printer requested the increase were expenses related to
mandatory pay and related personnel benefits increases, and to price increases for
services and supplies; expenses of making government documents electronically
available through the Federal Depository Library program’s electronic collection; and
costs of an increased statutory workload requirement, including publication of a new
edition of the U.S. Code. The FY2001 request included a direct appropriation of $6
million to the GPO revolving fund to replace the agency’s air conditioning
equipment.52
52The GPO revolving fund is an account which is funded by reimbursements from sales of
publications and by appropriations. Appropriations are made for specific purposes. The three
(continued...)
GPO is funded in Title I for congressional printing and binding, and in Title II
for the Office of Superintendent of Documents. Title II also contains funding from
time to time for the GPO revolving fund, as it does in the FY2001 request.
The FY2001 appropriation for Title I is $71.5 million. The request of $80.8
million was a 10.2% increase of $7.5 million over the FY2000 $73.3 million
appropriation. H.R. 4516, as reported, contained $65.5 million, a reduction of $7.8
million, or 10.7%, over FY2000. As passed, H.R. 4516 contained $69.6 million, a
reduction of $3.7 million, or 5.0%. The Senate’s bill contained $73.3 million, the
same as appropriated for FY2000.
The Title II appropriation in H.R. 4516 for FY2001 is $28.0 million, compared
with the Public Printer’s request of $40.5 million (including $6 million for the
revolving fund). H.R. 4516, as reported, contained $11.6 million, a reduction of
H.R. 4516 contained $25.7 million, a reduction of 14.1%, or $4.2 million. S. 2603
contained $30.3 million, an increase of 1.3% over the FY2000 appropriation of $30.0
million.
The GPO budget reduction in H.R. 4516, as reported to the House, was 25.3%
when combining Title I and Title II appropriations. As passed, the total budget
reduction is 7.7%, or $7.9 million, to $95.3 million from $103.2 million in FY2000.
Figure 14. Appropriations forFigure 15. Appropriations for
GPO, FY1995-FY2000GPO, FY1995-FY2000
52(...continued)
major operations of the revolving fund are (1) preparation of electronic databases of
government publications; the procurement and production of printing, CD–ROMs, and
electronic formats; (2) public sales of government documents through the Superintendent of
Documents; and (3) public distribution of publications on behalf of federal government
agencies on a reimbursable basis.
Major Funding Trends
Guide to Determining Legislative Budget Trends. Interpretation of
budget trends is determined primarily by three factors: (1) selection of current or
constant dollars to express budget authority (constant dollars reflecting the impact of
inflation); (2) selection of budget authority contained in annual appropriations bills,
with or without permanent budget authority (permanent budget authority not
requiring annual approval by Congress); and (3) selection of fiscal years to be
compared. Note: This discussion excludes FY2000 supplemental appropriations.
Selection of Current or Constant Dollars. Current-dollar data reflect
actual budget authority appropriated each year. Constant-dollar data reflect the
conversion of actual budget authority into equivalent 2000 dollars. For example,
Congress appropriated budget authority of $41,793,000 for the Senate in FY1968,
excluding permanent budget authority. Converted into 2000 dollars, $41,793,000 is
$204,641,586.
When reviewing the 31-year growth of the Senate budget from FY1968-FY2000
in current dollars, the increase amounts to 830.8%. In constant dollars, the increase
is 90.1%. The constant-dollar figure indicates budget growth after the effects of
inflation are neutralized.
Selection of Fiscal Years. Differences also appear based on choice of fiscal
years used to compare budgets. For example, a comparison of budget growth,
FY1968 and FY2000, shows these changes in total legislative budgets after
adjustment for inflation: FY1968-FY2000, +90.1%; FY1972-FY2000, +13.0%; and
FY1978-FY2000, -8.8%.53
Changes in the 1970s significantly affected the congressional budget.
Implementation by Congress of the 1970 Legislative Reorganization Act increased the
budgets and staffs of congressional committees and support agencies from FY1971
through FY1978. For example, the increase in total legislative budget authority,
adjusted for inflation, from FY1969 (pre-1970 Reorganization Act) through FY1973
(a year of significant implementation of the 1970 Act) was 64.5%.
The legislative budget during the 1970s also reflected implementation of the
1974 Congressional Budget and Impoundment Control Act, which created the House
and Senate Budget Committees and the Congressional Budget Office. Also, Congress
began to provide significant funding for its computer capabilities. This growth in the
legislative budget stabilized by FY1978 and has remained fairly level since that time.
Current Legislative Budget Trends. Between FY1978 and FY2000, the
total legislative budget, adjusted for inflation, decreased by 8.9%. Budget authority
for direct congressional operations in Title I decreased by 4.1% over this time.
53These figures are based on constant dollars and do not include permanent budget authority,
which is not included in the annual legislative branch appropriations bill, but, rather, is
automatically funded annually.
Throughout the 12 years following FY1978 (FY1979-FY1990), the legislative
budget remained lower than the FY1978 budget authority, when adjusted for inflation.
The first increase over the FY1978 budget occurred in FY1991, a 1.1% increase from
the FY1978 level.
Compared to the FY1978 budget, funding increased again in FY1992, FY1995,
FY1997, FY1998, and FY1999, and decreased in FY1993, FY1994, FY1996, and
FY2000, when adjusted for inflation. If inflation is taken into account, the total
legislative budget decreased by 5.9% between FY1994 and FY2000. Without
allowing for inflation, the change between FY1994 and FY2000 was an increase of
Table 2. Legislative Branch Appropriations, FY1995 to FY2000a
(budget authority in billions of current dollars)
FY1995 FY1996 FY1997 FY1998 FY1999 FY2000
a These figures represent current dollars, exclude permanent budget authorities, and contain supplementals and
rescissions. Permanent budget authorities are not included in the annual legislative branch appropriations
bill but, rather, are automatically funded annually.b
Includes budget authority contained in the FY1999 regular annual legislative branch appropriations act (P.L.
105-275), the FY1999 emergency supplemental appropriation (P.L. 105-277), and the FY1999
supplemental appropriation (P.L. 106-31).c
Includes budget authority contained in the FY2000 regular annual legislative branch appropriations act (P.L.
106-57); a supplemental and a 0.38% rescission in P.L. 106-113; and supplementals in P.L. 106-246 and
P.L. 106-554.
Table 3. Legislative Branch Appropriations, FY2001 (H.R. 4516)
(S. 2603) H.R. 5657 Which Was Incorporated by Reference in
P.L. 106-554
(in thousands of current dollars)
Enacted Enacted
FY2000, SenateFY2001,
Entity0.38%Rescission/FY2001RequestHouse Bill,As PasseddBill, AseConf. 0.22%Rescission
Supple-a Passed /Supple-f
mentals mentals
Title I: Congressional Operations
Payments to Widows and
Heirs of Deceasedb
Members (137) 0 0 0 (141) (565)
Senate 487,370 558,823 – 506,406 506,797 523,156
House of Representatives757,993800,738769,551–769,766768,073
Joint Items100,854134,078112,629124,821118,895120,850
Office of Compliance1,9922,0951,8162,0661,8201,816
Congressional Budget
Office 26,121 28,493 27,403 27,113 28,493 28,430
Architect of the Capitol,
excluding Library
Buildings and Grounds213,474226,927121,352153,246.185,190194,954
Congressional Research
Service, Library of
Congress 70,973 75,640 73,810 73,374 73,592 73,430
Congressional Printing and
Binding, Government
Printing Office73,29780,80069,62673,29771,46271,305
Subtotal, Title I1,732,2111,907,5941,176,187d960,323e1,756,0151,782,014
Title II: Other Legislative Agencies
Botanic Garden 3,4384,9163,2163,6533,3283,321
Library of Congress, except
Congressional Researchc
Service 323,380 352,447 323,903 325,632 338,729 437,697
Library Buildings and
Grounds, Architect of the
Capitol 19,857 20,278 15,837 16,347 15,970 15,935
Government Printing
Office, except
Congressional Printing and
Binding 29,872 40,451 25,652 30,255 27,954 27,893
General Accounting Office377,561399,918368,896384,867384,867384,019
Subtotal, Title II754,108818,010737,504760,754770,848868,865
Total, Title 1 and Title II2,486,3192,725,6041,913,691d1,721,077e2,526,8632,650,879
Scorekeeping g
Adjustments for FY2001- 1,522
GRAND TOTAL2,486,3192,725,6041,913,691d1,721,077e2,526,8632,649,357
Sources: House and Senate Appropriations Committees and public laws.
a Includes budget authority contained in the FY2000 regular annual legislative branch appropriations act in P.L.
106-57; a $10 million supplemental for the Library of Congress’ Russian leadership program, $136,700
supplemental for a gratuity payment, and a 0.38% rescission contained in P.L. 106-113; a supplemental
of $17.5 million for the Architect of the Capitol contained in P.L. 106-246; and a supplemental of $11.1
million contained in provisions of H.R. 5666, miscellaneous appropriations, which were incorporated by
reference in P.L. 106-554, Consolidated Appropriations Act, FY2001. The $11.1 million supplemental
contained $2.1 million for the Capitol Police Board for security and $9 million for the Architect of the
Capitol for House office buildings. b
This account is non-discretionary; hence, appropriations for it are not counted in the total legislative branch
appropriations figures in this table.c
This figure includes a $10 million supplemental for the Russian leadership program contained in P.L. 106-113.d
These figures do not contain appropriations for the Senate. The House does not consider appropriations in Title
I for Senate internal activities and Senate activities funded under the Architect of the Capitol. e
These figures do not contain appropriations for the House. The Senate does not consider appropriations in Title
I for House internal activities and House activities funded under the Architect of the Capitol.f
This column includes FY2001 regular annual appropriations contained in H.R. 5657, legislative branch
appropriations bill, and additional FY2001 appropriations of $118 million and a 0.22% across-the-board
rescission contained in H.R. 5666, miscellaneous appropriations bill. Both bills were incorporated by reference
in P.L. 106-554, FY2001 Consolidated Appropriations Act. The first FY2001legislative branch appropriations
bill, H.R. 4516, was vetoed Oct. 30, 2000. The second legislative branch appropriations bill, H.R. 5657, was
introduced Dec. 14 and incorporated in P.L 106-554.
g This figure represents scorekeeping adjustments in application of the 0.22% rescission to the House and
Senate.
Table 4. Senate Items, FY2001
(in thousands of current dollars)
Note: FY2001 appropriations for the Senate do not contain a 0.22% rescission of $1 million. The
final numbers that reflect the rescission are not yet available.
Enacted
FY2000 in
Regular
AccountsaAnnual Act,a 0.38%FY2001RequestHouseBillSenateBillConf. g
Rescission,
and Supple-d
mentals
Expense
Allowances/Representation 86 86 – 92
Salaries, Officers, and
Employees 89,968 93,253 – 92,321 92,321
Office of Legislative Counsel3,9014,046–4,0464,046
Office of Legal Counsel1,0351,069–1,0691,069
Expense Allowances for
Secretary of Senate, et al.1212–1212
Contingent Expenses, Subtotal394,404e460,357–408,866409,116
Inquiries and Investigations71,60474,136–73,00073,000
Senate Intl. Narcotics Control
Caucus 370 370 – 370 370
Secretary of the Senateb1,5112,077–2,0772,077
Sergeant at Arms andc
Doorkeeper 66,261 101,228 – 71,261 71,511
Miscellaneous Items8,6558,655–8,65525,155
Senators’ Official Personnel
and Office Expense Account245,703273,591–253,203253,203
Official Mail Costs300300–300300
Total, Senate487,370f558,823–506,406523,156
Sources: House and Senate Appropriations Committees and public laws.
a There are six Senate appropriations headings; they are indicated in bold print.
b Office operations of the secretary of the Senate also are funded under “Salaries, Officers, and Employees.”
c Activities of the Office of Sergeant at Arms and Doorkeeper are also funded under “Salaries, Officers, and
Employees.” d
Includes budget authority contained in the FY2000 regular annual Legislative Branch Appropriations Act (P.L.
106-57) and a supplemental and rescission of 0.38% contained in P.L. 106-113.e
The contingent expenses appropriation heading is $392.4 million when including a 0.38% rescission of $2.036
million, pursuant to P.L. 106-113. The rescission was made in six of the seven accounts within the
contingent expenses heading, with the exception of the official mail costs heading. Sources provide the
revised FY2000 appropriation adjusted for the rescission for the contingent expenses heading (revising
the appropriation from $394.404 million to $392.360 million), but do not provide the adjusted amounts
for the six accounts. As a result, the seven headings add to $394.4 million, not to $392.4 million. f
This figure reflects a $2.036 million rescission in the appropriation subheading, Contingent Expenses.
g Figures in this column do not contain the 0.22% rescission required in P.L. 106-554.
Table 5. House of Representatives Items, FY2001
(in thousands of current dollars)
Enacted in
FY2000
Regular
AccountsaAnnual Act,a 0.38%FY2001RequestHouse Bill,As PassedSenateBillEnactede
Rescission,
and Supple-d
mentals
Salaries and Expenses, Total757,993800,738 769,551769,766
House Leadership Offices
(subtotal)14,06014,70414,378 — 14,378
Members’ Representationalb
Allowances (subtotal)406,279422,894410,182 — 410,182
Committee Employees (subtotal) c114,973121,772 112,824112,824
Standing Committees, Special
and Select (except
Appropriations)(93,878)(99,242)(92,196) — (92,196)
Appropriations Committee(21,095)22,530(20,628) (20,628)
Salaries, Officers, and Employees
(subtotal) 90,15098,54690,403 — 90,403
Allowances and Expenses
(subtotal)132,531142,822141,764— 140,286
Supplies, Materials,
Administrative Costs and
Federal Tort Claims(2,741)(3,381) (2,235) — (2,235)
Official Mail (Committees,
leadership, administrative and
legislative offices)(410)(410)(410) — (410)
Government Contributions(128,704)(138,355) (138,726) — (137,033)
Miscellaneous Items(676)(676) (393) — (393)
Total, House757,993800,738769,551—768,073
Source: House Appropriations Committee.
a The appropriations bill has two House accounts: (1) payments to widows and heirs of deceased Members of
Congress and (2) salaries and expenses.b
This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of (1) the
former heading Members’ clerk hire; (2) the former heading official mail costs; and (3) the former
subheading official expenses of Members, under the heading allowances and expenses.c
This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of (1) the
former heading committee employees; (2) the former heading standing committees, special and select;
(3) the former heading Committee on Budget (studies); and (4) the former heading Committee on
Appropriations (studies and investigations).d
Includes budget authority contained in the FY2000 regular annual Legislative Branch Appropriations Act in
P.L. 106-57, and a supplemental and a rescission of 0.38% contained in P.L. 106-113. e
Includes FY2001 regular annual appropriations contained in H.R. 5657, legislative branch appropriations bill,
and additional FY2001 appropriations of $101.5 million and a 0.22% across-the-board rescission
contained in H.R. 5666, miscellaneous appropriations bill. Both bills were incorporated by reference in
P.L. 106-554, FY2001 Consolidated Appropriations Act. The first FY2001legislative branch
appropriations bill, H.R. 4516, was vetoed Oct. 30, 2000. The second legislative branch appropriations
bill, H.R. 5657, was introduced Dec. 14 and incorporated in P.L 106-554.
Table 6. Legislative Branch Budget Authority Contained in
Appropriations Acts, FY1995-FY2000
(Does not include permanent budget authority; in thousands of current dollars)
FY2000,
Inclding
FY1995FY1996FY1997FY1998 FY1999dSupple-mentals,
and 0.38%l
Rescission
Title I: Congressional Operationsa
Senate460,581426,919 441,208 461,055474,891e487,370
House ofb728,736670,561 684,098 709,008f
Representatives 740,481 757,993
Joint Itemsb85,48981,839 88,581 86,711204,916g100,854
Office of02,500 2,609 2,479
Compliance 2,086 1,992
Office of
Technology21,3206,115 0 000
Assessment
Congressional23,00124,288 24,532 24,797
Budget Office25,67126,121
Architect of the
Capitol, except157,190142,970 140,674192,156289,746h213,474
Library Buildings
and Grounds
Congressional
Research Service,60,08460,084 62,641 64,60367,12470,973
Library of Congress
Congressional
Printing and
Binding,84,72483,770 81,669 81,669 74,46573,297
Government
Printing Office
Total, Title Ib1,621,1251,499,0461,526,0121,622,4781,879,3801,732,211
Title II: Other Agenciesa
Botanic Garden3,2303,053 36,402 3,0163,0523,438
Library of Congress,262,866264,616 269,117 282,309296,516i323,380m
except CRS
Library Buildings
and Grounds,12,48312,428 9,753 11,57313,672j19,857
Architect of the
Capitol
Government
Printing Office,
except31,60730,307 29,077 29,07729,26429,872
Congressional
Printing and
Binding
FY2000,
Inclding
FY1995FY1996FY1997FY1998 FY1999dSupple-mentals,
and 0.38%l
Rescission
General Accounting446,743374,406 332,520 339,499359,268k 377,561
Office
Total, Title II756,929684,810 676,869 665,474701,771754,108
Grand Total b,c2,378,0542,183,856 2,202,8812,287,9522,581,1522,486,319n
See notes at end of Table 7.
Table 7. Legislative Branch Budget Authority Contained in
Appropriations Acts, FY1995-FY2000
(Does not include permanent budget authority;
in thousands of constant 2000 (est.) dollars)
FY2000,
Including
FY1995 FY1996 FY1997 FY1998 FY1999 d Supple-mentals,
and 0.38%l
Rescission
Title I: Congressional Operationsa
Senate 514,930 455,096 468,563 481,803 485,814 e 487,370
House ofb814,727714,818726,512740,913f
Representatives 757,512 757,993
Joint Itemsb95,57787,24094,07390,613209,629g100,854
Office of Compliance02,6652,7702,5912,1341,992
Office of Technology23,8366,5190000
Assessment
Congressional 25,715 25,891 26,053 25,913
Budget Office 26,26126,121
Arch. of the Capitol,
except Library175,738152,406149,396200,803296,410h213,474
Buildings and
Grounds
Congressional
Research Service,67,17464,05066,52567,510 68,66870,973
Library of Congress
Congressional
Printing and94,72189,29986,73385,34476,17873,297
Binding, Government
Printing Office
TOTAL, Title I b1,812,4181,597,9831,620,6251,695,4901,922,6061,732,211
Title II: Other Agencies a
Botanic Garden3,6113,25538,6593,1523,1223,438
Library of Congress,293,884282,081285,802295,013303,336i323,380m
except CRS
Library Buildings
and Grounds,13,95613,24810,35812,09413,987j19,857
Architect of the
Capitol
Government Printing
Office, except35,33732,30730,88030,38629,93729,872
Congressional
Printing and Binding
General Accounting499,459399,117353,136354,777367,531k
Office 377,561
FY2000,
Including
FY1995 FY1996 FY1997 FY1998 FY1999 d Supple-mentals,
and 0.38%l
Rescission
Total, Title II846,247730,008718,835695,420717,912754,108
Grand Total b,c2,658,6642,327,9912,339,4602,390,9102,640,5192,486,319n
Sources: Budget authorities for FY1994–FY2000 are from the House Appropriations Committee.
FY1995 budget authorities reflect rescissions and a supplemental contained in P.L. 104-19, 109 Stat.
219-221, July 27, 1995, FY1995 Supplemental and Rescissions Act (H.R. 1944). FY1996 budget
authorities reflect rescissions contained in P.L. 104-208, 110 Stat. 3009-510-511, Sept. 30, 1996,
FY1997 Omnibus Consolidated Appropriations Act (H.R. 3610). FY1998 budget authorities represent
supplementals contained in P.L. 105-174, May 1, 1998, and an $11 million transfer to the Government
Printing Office (GPO) from the GPO revolving fund. FY1999 budget authorities contain emergency
supplemental appropriations in P.L. 105-277, and supplemental appropriations in P.L. 106-31. FY2000
budget authorities contain a supplemental and a 0.38% rescission in P.L. 106-113. Totals reflect
rounding.
FY1999 budget authority contains $223.7 million in emergency supplemental appropriations (P.L.
105-277), and $3.8 million for expenses of a House page dormitory and $1.8 million for expenses
of life safety renovations to the O’Neill House Office Building (P.L. 106-31). The FY1999
appropriation also contains a recission of $3.5 million, and a supplemental for the same amount
in P.L. 106-31.
Excludes permanent federal funds (in thousands of current dollars): FY1995, $343,000; FY1996,
$302,000; FY1997, $325,000; FY1998, $333,000; FY1999, $358,000; and FY2000, $279,000.
Sources are the U.S. Budget and the House and Senate Committees on Appropriations.
Excludes permanent trust funds (in current dollars, in thousands): FY1995, $16,000; FY1996,
$31,000; FY1997, $29,000; FY1998, $29,999; FY1999, $47,000; and FY2000, $51,000.
Sources are the U.S. Budget and the House and Senate Committees on Appropriations.
The formula for conversion to constant dollars is as follows: 2000 Consumer Price Index (CPI) number
divided by each year’s CPI number multiplied by that year’s budget authority. The CPI index
numbers used were 152.4 (1995), 156.9 (1996), 160.5 (1997), 163.0 (1998), 166.6 (1999), and
170.4 (2000 est.). Source for 1995-1999 index figures is the Bureau of Labor Statistics. Source
for 2000 estimate is the Congressional Budget Office.
a Prior to FY1978, the legislative branch appropriations act contained numerous titles. Effective in
FY1978, Congress restructured the legislative bill so that it would “more adequately reflect actual
costs of operating the U.S. Congress than has been true in the past years” (H.Rept. 95-450,
FY1978 Legislative Appropriations). As a result, the act was divided into two titles. Title I,
Congressional Operations, was established to contain appropriations for the actual operation of
Congress. Title II, Related Agencies, was established to contain the budgets for activities not
considered as providing direct support to Congress. Periodically, the act has contained additional
titles for such purposes as capital improvements and special one-time functions. b
FY1996 figures contain rescissions in the Omnibus Consolidated Appropriations Act, FY1997 (P.L.
H11779.c
Grand totals reflect rounding and, as a result, may differ slightly from totals obtained by adding Titles
I and II in this table.d
Includesbudget authority contained in the FY1999 regular annual Legislative Branch Appropriations
Act (P.L. 105-275), $223.7 million in FY1999 emergency supplemental appropriations in P.L.
e Includes $5.5 million in emergency supplementals under the sergeant at arms for completion of Year-
Includes $6.373 million in emergency supplementals under the chief administrative officer for
completion of Year–2000 computer conversion (P.L. 105-277), and includes a rescission of $3.5
million from the House heading “salaries, officers, and employees” and a supplemental
appropriation of $3.5 million for the chief administrative officer for replacement of the House
payroll system (P.L. 106-31).g
Includes $106,782,000 for emergency security enhancements funded under the Capitol Police Board’s
general expenses account (P.L. 105-277). The total Joint Items figure also includes $2 million
for the Trade Deficit Review Commission.h
This figure includes $100,000,000 for design and construction of a Capitol visitors’ center, funded
under the Architect of the Capitol’s Capitol buildings account, in “salaries and expenses” (P.L.
105-277), and includes $3.8 million for expenses of a House page dormitory and $1.8 million
for expenses of life safety renovations to the O’Neill House Office Building (P.L. 106-31). i
In FY1999, the Library had authority to spend $28 million in receipts.j
Includes $1 million for the Congressional Cemetery.k
Includes $5 million in emergency supplemental appropriations under the salaries and expenses
account of the General Accounting Office for completion of the Year-2000 computer conversion
(P.L. 105-277).l
Includes regular annual appropriations and a 0.38% rescission and supplemental in P.L. 106-113.
Figures do not contain appropriations pending in the FY2000 supplemental, H.R. 3908, passed
by the House on March 30, 2000.m
In FY2000, the Library has authority to spend $33.1 million in receipts.n
This figure also includes a gratuity payment of $136,700 contained in FY2000 supplemental
appropriations in P.L. 106-113.
For Additional Reading
CRS Reports
CRS Report RL30212. Legislative Branch Appropriations for FY2000, by Paul Dwyer
CRS Report 98-212. Legislative Branch Appropriations for FY1999, by Paul Dwyer.
CRS Report RL30083. Supplemental Appropriations and Rescissions for FY1999,
coordinated by Larry Nowels.
Selected World Wide Web Sites
These sites contain information on the FY2000 legislative branch appropriations request
and legislation, and the appropriations process.
House Committee on Appropriations
[http://www.house.gov/appropriations]
Senate Committee on Appropriations
[http://www.senate.gov/~appropriations/]
CRS Appropriations Products Guide
[http://www.crs.gov/products/appropriations/apppage.shtml]
Congressional Budget Office
[http://www.cbo.gov]
General Accounting Office
[http://www.gao.gov]
Office of Management & Budget
[http://www.whitehouse.gov/omb/]