For other versions of this document, see http://wikileaks.org/wiki/CRS-RL32312
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Order Code RL32312
CRS Report for Congress
Received through the CRS Web
Appropriations for FY2005:
Legislative Branch
Updated December 13, 2004
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.crs.gov/products/appropriations/apppage.shtml].
Appropriations for FY2005: Legislative Branch
Summary
Congress agreed to a 1.2% increase in its budget authority for FY2005,
appropriating $3.57 million, subject to a 0.80% rescission. Although legislative
branch agencies requested an overall 12.5% increase, the chairmen and some
members of the House and Senate Subcommittees on Legislative Branch indicated
early in budget discussions the probability of a fairly flat FY2005 budget.
Subsequently, during markup the House and Senate Committees on Appropriations
approved a freeze on FY2005 legislative branch budget authority. The House bill
(H.R. 4755) contained a -0.1% change from FY2004, excluding Senate items; the
Senate's version of H.R. 4755, amended to contain the language of S. 2666,
contained a +0.33% change, excluding House items. Both bills fell below the 1.3%
increase agreed to earlier this year by the House and Senate for discretionary agencies
and programs under jurisdictions of the House and Senate Subcommittees on
Legislative Branch. Among elements under consideration during discussions on the
FY2005 budget were
! impact of a flat budget funded at the FY2004 level with additional
appropriations to pay for mandatory expenses (annual salary
increases and related increased personnel costs), and for costs of
goods and services increased due to inflation;
! impact of a budget funded at the FY2004 level with no additional
funds for mandatory expenses and inflationary increases;
! impact of a tight budget on funding to equip and startup the Capitol
Visitors' Center (CVC) (the House bill did not contain funds, while
the Senate bill contained $7.6 million; conferees authorized a
transfer up to $10.6 million to the CVC;
! impact of funding restrictions on implementation of additional
security enhancements within and around the Capitol complex,
including funding for the Capitol Police;
! elimination of the Joint Economic Committee (proposed but
postponed in House Subcommittee markup; not considered in full
committee markup);
! authorization for the Government Accountability Office (GAO),
formerly named the General Accounting Office, to study statutory
jurisdictions of the joint economic and taxation committees to
determine possible overlap (included in the House bill, but
specifically not supported in the Senate bill);
! elimination of the Capitol Hill mounted police force (adopted during
House Subcommittee markup, but supported in Senate report
language); and
! extension of dental and vision benefits to Members and House
employees (proposed for employees but postponed during House
Subcommittee markup); considered and agreed to in full committee
markup (applicable to both employees and Members).
Key Policy Staff
Area of CRS
Expertise Name Division Telephone and E-mail
Appropriations Bill Heniff GOV/FIN 7-8646
Process wheniff@crs.loc.gov
Sandy Streeter GOV/FIN 7-8653
sstreeter@crs.loc.gov
Committee Paul Rundquist GOV/FIN 7-6939
Funds prundquist@crs.loc.gov
Legislative Paul Dwyer GOV/FIN 7-8668
Operations pdwyer@crs.loc.gov
Mildred Amer GOV/FIN 7-8304
mamer@crs.loc.gov
Paul Rundquist GOV/FIN 7-6939
prundquist@crs.loc.gov
Division abbreviations: GOV/FIN = Government and Finance
Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Introduction to the Legislative Branch Appropriations Bill . . . . . . . . . . . . . . . . . . 1
Status of FY2005 Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Action on the FY2005 Legislative Branch Appropriations Bill
(H.R. 4755; S. 2666; Incorporated in H.R. 4818, Consolidated
Appropriations Act, FY2005) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Submission of FY2005 Budget Request on February 3, 2004 . . . . . . . . 4
Submission of FY2005 Budget Amendments on May 6, 2004 . . . . . . . 4
House Hearings on FY2005 Budget Request . . . . . . . . . . . . . . . . . . . . 4
Senate Hearings on FY2005 Budget Requests . . . . . . . . . . . . . . . . . . . 5
FY2005 302(b) Allocation for the House and Senate Subcommittees
on Legislative Branch . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
House Subcommittee Markup of FY2005 Bill . . . . . . . . . . . . . . . . . . . 5
House Full Committee Markup of the FY2005 Bill . . . . . . . . . . . . . . . 6
House Report of FY2005 Bill (H.R. 4755) . . . . . . . . . . . . . . . . . . . . . . 8
House Passage of FY2005 Bill (H.R. 4755) . . . . . . . . . . . . . . . . . . . . . 8
Senate Full Committee Markup and Report of the FY2005 Bill
(S. 2666) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Senate Passage of FY2005 Bill (H.R. 4755, Amended to Contain
S. 2666) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Conference Report on FY2005 Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
FY2005 Legislative Branch Funding Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Capitol Complex Security -- U.S. Capitol Police . . . . . . . . . . . . . . . . . . . . 11
Funding Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Capitol Complex Security -- Capitol Visitors' Center . . . . . . . . . . . . . . . . 11
Architect of the Capitol Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Funding Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
House of Representatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Overall Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
House Committee Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Senate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Overall Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Senate Committee Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Support Agency Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Congressional Budget Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Government Accountability Office . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Library of Congress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Congressional Research Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Government Printing Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Selected Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
List of Tables
Table 1. Legislative Branch Appropriations, FY1995 - FY2005 . . . . . . . . . . . . . 3
Table 2. Status of Legislative Branch Appropriations, FY2005
(P.L. 108-447, Consolidated Appropriations Act, FY2005) . . . . . . . . . . . . . 3
Table 3. Legislative Branch Appropriations, FY2005 (H.R. 4818,
P.L. 108-447, Omnibus Appropriations Act) . . . . . . . . . . . . . . . . . . . . . . . . 19
Table 4. Capitol Police Appropriations, FY2005 (H.R. 4818, P.L. 108-447,
Omnibus Appropriations Act) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Table 5. Architect of the Capitol Appropriations, FY2005 (H.R. 4818,
P.L. 108-447, Omnibus Appropriations Act) . . . . . . . . . . . . . . . . . . . . . . . . 22
Table 6. Senate Appropriations, FY2005 (H.R. 4818, P.L. 108-447,
Omnibus Appropriations Act) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Table 7. House of Representatives Appropriations, FY2005 (H.R. 4755;
H.R. 4818, Division G of P.L. 108-447, Omnibus Appropriations Act) . . . 24
Appropriations for FY2005:
Legislative Branch
Most Recent Developments
On November 20, 2004, both houses agreed to the conference report on a
consolidated appropriations bill (H.R. 4818), containing the FY2005 legislative
branch appropriations bill, along with eight other regular annual appropriations bills
on which action had not yet been completed.1 H.R. 4818 was signed by the President
on December 8, 2004 (P.L. 108-447, 118 Stat. 2809; 658 pages).
Introduction to the Legislative Branch
Appropriations Bill
The annual legislative branch appropriations bill contains two titles.
Appropriations for legislative branch agencies are contained in Title I. Title II
contains general administrative provisions, and from time to time, appropriations for
legislative branch entities. For example, in the FY2003 Act Title II contained
funding for the John C. Stennis Center for Public Service Training and Development
and the Congressional Award Act.
Congress changed the structure of the annual legislative branch appropriations
bill effective in FY2003. Prior to enactment of the FY2003 bill, and effective in
FY1978, the legislative branch appropriations bill was divided into two titles. Title
I, Congressional Operations, contained budget authorities for activities directly
serving Congress. Included in this title were 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, contained budgets for activities not directly
supporting Congress. Included in this title were 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
1
For a discussion of the FY2005 Consolidated Appropriations Act, including language
modifying a rescission to 0.80% (contained in an enrollment correction resolution), see CRS
Report RS21983, FY2005 Consolidated Appropriations Act: Reference Guide, by Robert
Keith.
CRS-2
Printing Office (except congressional printing and binding costs), and the
Government Accountability Office (GAO), formerly named the General Accounting
Office. Periodically since FY1978, the bill contained additional titles for such
purposes as capital improvements and special one-time functions.
In addition to activities funded in the annual legislative branch appropriations
bill, other legislative budget authorities include permanent budget authority for both
federal funds and trust funds, and non-legislative entities. These include the
following:
Permanent federal funds are available as the result of previously enacted
legislation and do not require annual action.2
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 in the U.S. Budget, prepared by the Office of Management and Budget,
either as budget receipts or offsetting collections.3
The U.S. Budget also contains non-legislative entities within the legislative
branch budget. They are funded in other appropriation bills, but are counted as
legislative branch funds by the Office of Management and Budget for bookkeeping
purposes.4
For a more accurate picture of the legislative branch budget, as contained in the
annual legislative branch appropriation bill, the total FY2005 legislative branch
appropriation figure in the FY2005 U.S. Budget must be adjusted. This is
accomplished by subtracting non-legislative funds and permanent federal and trust
funds. The FY2005 U.S. Budget contains a legislative budget authority request of
2
FY2005 estimated legislative branch permanent federal fund authority is $358 million,
comprised of House and Senate Member pay ($110 million); House and Senate use of
foreign currencies (for use of Members traveling in foreign countries) ($9 million);
Architect of the Capitol intergovernmental funds ($2 million), and Library of Congress
payments to copyright owners ($237 million). Source is the FY2005 U.S. Budget (with
figures rounded to the nearest million).
3
FY2005 estimated permanent trust fund authority is $27 million, comprised of Architect
of the Capitol, U.S. Botanic Garden, gifts and donations ($2 million); Library of Congress
gift and trust fund account ($21 million); U.S. Tax Court trust fund ($1 million); and "Other
Legislative Branch Agencies" ($3 million), including U.S. Capitol Preservation Commission
trust funds ($1 million) and John C. Stennis Center for Public Service Training and
Development trust funds ($2 million). This total does not include payment to the Open
World Leadership trust fund ($15 million), since its appropriation is a separate account in
the FY2005 bill. Source is the FY2005 U.S. Budget (which contains figures rounded to the
nearest million).
4
The FY2005 U.S. Budget contains $48 million in federal funds for non-legislative entities
under two headings: (1) "U.S. Tax Court" ($41 million); and (2) "Other Legislative Branch
Boards and Commissions" ($7 million). Source is the FY2005 U.S. Budget (which contains
figures rounded to the nearest million).
CRS-3
$4.4 billion. After subtracting non-legislative entities ($48 million), permanent
federal funds ($358 million), and permanent trust funds ($27 million), the total
request for entities funded in the regular annual appropriation bill is $3.97 billion.
Table 1. Legislative Branch Appropriations, FY1995 - FY2005
(budget authority in billions of current dollars)a
Fiscal Years
1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005
2.378 2.184 2.203 2.288 2.581b 2.486c 2.730d 3.252e 3.461f 3.528g 3.571h
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.
d. This figure contains: (1) FY2001 regular annual appropriations contained in H.R. 5657, legislative branch
appropriations bill; (2) FY2001 supplemental appropriations of $118 million and a 0.22% across-the-board
rescission contained in H.R. 5666, miscellaneous appropriations bill; and (3) FY2001 supplemental
appropriations of $79.5 million contained in H.R. 2216 (P.L. 107-20). H.R. 5657 and H.R. 5666 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, 2000, and incorporated in P.L. 106-554.
This figure does not reflect any terrorism supplementals funds released pursuant to P.L. 107-38.
e. This figure contains regular annual appropriations in P.L. 107-68; transferred from the legislative branch
emergency response fund pursuant to P.L. 107-117; and FY2002 supplemental appropriations in P.L. 107-
206.
f. This figure contains regular annual appropriations in P.L. 108-7, FY2003 Omnibus Appropriations Act, and
supplemental appropriations in P.L. 108-11.
g. This figure contains regular annual appropriations in P.L. 108-83, FY2004 Legislative Branch Appropriations
Act. Additional FY2004 provisions which did not contain appropriations were contained in P.L. 108-199,
the FY2004 Consolidated Appropriations Act.
h. This figure contains regular annual appropriations in P.L. 108-447, Consolidated Appropriations Act, FY2005.
Status of FY2005 Appropriations
Table 2. Status of Legislative Branch Appropriations,
FY2005 (P.L. 108-447, Consolidated Appropriations Act, FY2005)
Conference Report
Committee Markup Approval
House House Senate Senate Conference
House Senate Report Passage Report Passage Report House Senate Public Law
7/01/04 7/15/04 11/19/04 12/8/04
11/20/04 11/20/04
6/23/04a 7/15/04b H.Rept. 7/12/04 S.Rept. 9/21/04 H.Rept. P.L.
(344-51) (65-30)
108-577 108-307 108-792 108-447
a. The bill was marked up by the House Subcommittee on Legislative Branch on June 16, 2004.
b. The Senate Subcommittee on Legislative Branch did not hold a formal markup.
CRS-4
Action on the FY2005 Legislative Branch Appropriations Bill
(H.R. 4755; S. 2666; Incorporated in H.R. 4818, Consolidated
Appropriations Act, FY2005)
Submission of FY2005 Budget Request on February 3, 2004. A
substantial part of the 12.5% increase requested is to meet (1) mandatory expenses,
which includes funding for annual salary adjustments required by law and related
personnel expenses, such as increased government contributions to retirement based
on increased pay, and (2) expenses related to increases in the costs of goods and
services due to inflation.
Submission of FY2005 Budget Amendments on May 6, 2004. The
President submitted amendments to pending FY2005 legislative branch budgets.
These amendments were based on requests of legislative branch entities, and contain
an additional $2.7 million in net discretionary resources. The amendments contain
funds for the Senate ($1.7 million),5 Joint Economic Committee ($4,000), Capitol
Guide Service and Special Services Office ($5,000), Library of Congress Copyright
Office ($810,000),6 and Congressional Research Service ($200,000).7
Another amendment eliminated a proviso governing the use of some
appropriations requested for the Congressional-Executive Commission on the
People's Republic of China. The commission is not funded in the annual legislative
appropriation bill, but rather is placed in the legislative branch section of the U.S.
Budget by the Office of Management and Budget for bookkeeping purposes.
House Hearings on FY2005 Budget Request. The first House hearing
scheduled for February 25, 2004, was cancelled that morning by Representative Jack
Kingston, chairman of the Subcommittee on Legislative Branch. Referring to
significant increases in agency requests, Representative Kingston stated that
With record deficits, a war on terrorism, and troops on the ground in Afghanistan
and Iraq, the budget is too tight to waste our time entertaining requests for a 40-
percent spending increase. The President's budget calls for an increase of less
than one-percent in non-defense and non-homeland security discretionary
spending but these `inside the beltway' bureaucracies want 32- to 45-percent
increases.8
5
The amendment contains additional funds for the salaries, officers and employees account.
6
The amendment reduces the amount of offsetting collections available for obligation by
$810,000 while maintaining the same total gross budget amount for the Library of Congress.
Since offsetting collections reduce the amount of new discretionary appropriations, a
decrease in offsetting collections without an equivalent decrease in the total gross budget
amount has the effect of increasing the new discretionary appropriations requested.
Therefore, the amendment results in an increase in the amount requested for new
discretionary appropriations by $810,000.
7
The amendment funds the acquisition of research materials necessary in FY2005.
8
See Feb. 25, 2004, news release issued by Rep. Kingston on his decision to cancel at
[http://www.house.gov/kingston/rls_LegBranchcancel.htm].
CRS-5
The chairman subsequently requested the heads of legislative entities to resubmit
revised, reduced budgets, and to explain the impact on authorized staff levels.
Among legislative entities with requests containing increases of 32% or more are
the Capitol Police (32.7%) and the Architect of the Capitol (45.2%). The Office of
Compliance requested a 31.6% increase.
On April 22, 2004, the House held its first hearing, considering budget requests
of the House of Representatives and GAO. Hearings continued April 28 on the
budgets of the Capitol Police and GPO, and were followed by May 12 hearings on the
budget submissions of the AOC, LOC, and Capitol Visitors' Center (CVC). Plans are
pending for a closed hearing on Capitol Hill security.
Senate Hearings on FY2005 Budget Requests. The Senate
Subcommittee on Legislative Branch, Committee on Appropriations, held hearings
March 4 on budget submissions of the GAO, GPO, and CBO; March 11 on the
budget request of the LOC, including the CRS; April 1 on the budgets of the Senate
Sergeant at Arms and the Capitol Police; and April 8 on the budgets of the Secretary
of the Senate and AOC.
FY2005 302(b) Allocation for the House and Senate Subcommittees
on Legislative Branch. Both houses agreed to a FY2005 budget authority cap of
$3.575 billion for discretionary agencies and programs under the jurisdiction of the
Subcommittees on Legislative Branch. The limit allows a 1.3% increase over FY2004
enacted budget authority.9
House Subcommittee Markup of FY2005 Bill. As approved by the House
Subcommittee on Legislative Branch, the FY2005 bill contains $2.75 billion
(excluding Senate funds), the same as FY2004; the amount reflects a 16.4% decrease
from the request of $3.2 billion (excluding Senate funds). According to a House
Appropriations Committee press release, the frozen FY2005 funding level:
! maintains the current staff levels in legislative branch agencies;
! funds completely the annual comparability adjustment for staff;
! funds a fitness facility for House staff; and
! contains no funds for new major construction projects by the AOC,
directing that resources of the Architect by used for on ongoing
projects, specifically mentioning the CVC.10
9
On June 15, the House Committee on Appropriations released its FY2005 budget authority
allocations for subcommittees. See U.S. Congress, House Committee on Appropriations,
Report on the Suballocation of Budget Allocations for Fiscal Year 2005, 108th Cong., 2nd
sess., H.Rept. 108-543 (Washington: GPO, 2004), pp. 1-4. Senate subcommittee allocations
were approved by the Senate Committee on Appropriations on September 8
[http://appropriations.senate.gov/releases/record.cfm?id=225812]. For a discussion of
House and Senate actions on the FY2005 budget resolution, see CRS Report RL32246,
Congressional Budget Actions in 2004, by Bill Heniff, Jr.
10
See the press release of the House Appropriations Committee issued June 16, 2004:
(continued...)
CRS-6
The bill contains the following new budget authority for legislative branch
entities:
! $1.044 billion for the House of Representatives, a 3.6% increase over
$1.008 billion;
! $232 million for the U.S. Capitol Police, a 5.5% increase over $220
million;
! $35 million for the Congressional Budget Office, a 2.9% increase
over $34 million;
! $272 million for the Architect of the Capitol (excluding funds for
Senate office buildings), a decrease of 20% from $340 million;
! $543 million for the Library of Congress, a 3.8% increase over $523
million;
! $121 million for the Government Printing Office, a decrease of 10.4%
from $135 million; and
! $474 million for the Government Accountability Office, a 3.5%
increase over $458 million.
The subcommittee considered four amendments, adopting one. These included
amendments to
! eliminate the Joint Economic Committee (offered by Chairman Jack
Kingston). Amendment was withdrawn pending further consideration
before full committee markup;
! remove a provision of law prohibiting the use of funds to establish a
dental and vision benefits program for House employees (offered by
ranking minority member James Moran). Amendment was
withdrawn subject to further study;
! prohibit funding for the U.S. Capitol Police mounted horse unit
(offered by Representative Mark Steven Kirk). Amendment was
adopted by voice vote; and
! prohibit lame-duck Members of Congress from filing ethics
complaints against other Members (offered by Representative Ray
LaHood). Amendment failed 5-5.
House Full Committee Markup of the FY2005 Bill. During its June 23
markup, the full committee approved the subcommittee's recommendations after
agreeing to the following six amendments:
! manager's amendment (offered by Chairman Jack Kingston)
containing seven provisions: (1) expressing gratitude to House
employees for assistance during the funeral of President Ronald
Reagan; (2) directing changes in the administrative reorganization of
the U.S. Capitol Police force; (3) authorizing a review of the
appointment process, salary determination, and retirement benefits for
10
(...continued)
[http://appropriations.house.gov/index.cfm?FuseAction=PressReleases.Detail&PressRele
ase_id=393].
CRS-7
top personnel in legislative branch agencies; (4) directing the House
Chief Administrative Officer to monitor compliance by vendors with
House prepayment policies; (5) authorizing GAO to study overlap of
research on economic issues by the Joint Economic Committee, CRS,
CBO, and the Joint Committee on Taxation;11 (6) encouraging the
GAO to undertake additional technology assessment studies as
Congress directs; and (7) prohibiting use of funds in the bill to pay
employees of the legislative branch more than a Member of Congress.
The manager's amendment was agreed to by voice vote;
! an amendment to strike a prohibition on the use of funds to study a
dental and vision care benefits program for employees of the House
(offered by ranking minority member James Moran); the amendment
did not strike a prohibition on the inclusion of Members in such a
study; amendment was agreed to by voice vote;
! an amendment to strike the prohibition on the use of funds to study
dental and vision care benefits for Members (offered by
Representative John Doolittle); amendment was agreed to by voice
vote;
! an amendment to encourage Members to use hydro-electric vehicles
or alternative fuel vehicles while on official business travel (offered
by Representative Zach Wamp); amendment, as amended (see
below), was agreed to by voice vote;
! an amendment to the Wamp amendment to include alternative fuel
vehicles (offered by Representative Marcy Kaptur); amendment to the
amendment was agreed to by voice vote; and
! an amendment to prohibit the construction of a perimeter fence
around the Capitol (offered by Representative Sam Farr); amendment
was agreed to by voice vote.
The committee did not agree to three amendments that sought to
! add $2.4 million to the Open World program located in the Library
of Congress12 (offered by Representative David Price); amendment
failed by a vote of 25-29;
! establish the Accountability and Review of Federal Agencies
Commission "to study non-defense and non-mandatories for
11
This provision summary is based on the remarks of Hon. Jack Kingston, chairman of the
House Subcommittee on Legislative Branch, during full House Appropriations Committee
markup of the FY2005 legislative branch appropriations bill, June 23, 2004
12
The FY2005 budget recommendation represents a 50% cut.
CRS-8
redundancies"13 (offered by Representative Todd Tiahrt); amendment
failed by voice vote; and
! reduce the appropriation for the Joint Economic Committee by 50%
(offered by Representative Jack Kingston); amendment failed by
voice vote.
In its report, the committee addressed its expectations of significant future
savings directing legislative agencies (1) to submit "more reasonable" funding
requests reflective of budget constraints faced by all federal agencies; (2) to
"streamline" their organizations, outsource operations, apply "best practices"
management principles, and use existing technology to enhance operations; (3) to
"examine potential outsourcing opportunities" in almost all operations; and (4) to
cooperate in a study to determine means to centralize the distribution of printed
material in the legislative branch.14
House Report of FY2005 Bill (H.R. 4755). On July 1, the House
Appropriations Committee reported H.R. 4755, as marked up on June 23 (H.Rept.
108-577). See discussion of the House markup in this report.
House Passage of FY2005 Bill (H.R. 4755). The House passed H.R. 4755
on July 12 after rejecting the following two amendments and a motion to recommit:15
! an amendment to add $30 million to the appropriation for the GAO
(salaries and expense account) to establish within the agency the
Center for Science and Technology Assessment, and offset the
increase by reducing the appropriation for the AOC (general
administration account) by $15 million and the appropriation for the
GPO (congressional printing and binding account) also by $15
million (offered by Representative Rush Holt); amendment was
rejected by a vote of 115-252, vote #359;
! an amendment to provide for a 1% reduction in appropriations or
amounts made available in the bill that are not required to be
appropriated or made available (offered by Representative Joel
Hefley); amendment was rejected by a vote of 87-278, vote #360; and
! a motion to recommit the bill to committee with an amendment
which limited each House committee to a maximum of $25,000 for
postage expenses (offered by Representative Brad Sherman); motion
was rejected 163-205, vote #361.
13
Remarks of Representative Todd Tiahrt during markup by the House Committee on
Appropriations of the FY2005 legislative branch appropriations bill on July 23, 2005.
14
U.S. Congress, House Committee on Appropriations, Legislative Branch Appropriations
Bill, 2005, report to accompany H.R. 4755, 108th Cong., 2nd sess., H.Rept. 108-577
(Washington: GPO, 2004), pp. 4-6.
15
For the text of House consideration see Congressional Record, daily edition, vol. 150,
July 12, 2004, pp. H5488-H5500.
CRS-9
Senate Full Committee Markup and Report of the FY2005 Bill (S.
2666). During markup, the Senate Committee on Appropriations adopted a
manager's amendment offered by Senator Ben Nighthorse Campbell, chairman of the
Subcommittee on Legislative Branch. Among its provisions were those to:
! express the Committee's support of a John Brademas Center for the
Study of Congress at New York University to enhance understanding
of federal policymaking (included in Library of Congress report
language) (on behalf of Senator Richard Durbin);
! express failure of the Committee to support House-passed language
directing the GAO to study the statutory responsibilities of the joint
economic and taxation committees (included in Joint Economic
Committee report language) (on behalf of Senator Robert Bennett);
! direct the LOC to make $500,000 available (by means of a grant) to
the Middle Eastern Text Initiative for translation and publishing
activities (on behalf of Bennett);
! add language on electronic services handled by the Senate Sergeant
at Arms (on behalf of Hon. Ted Stevens);
! provide authority to the U.S. Capitol Police to assist congressional
delegations traveling overseas by offering advice on security and
assisting in advance security liaison preparations (on behalf of
Campbell);
! commend the LOC on its Lewis and Clark exhibit and direct the LOC
to support the exhibit as it travels in the United States (included in
Library of Congress report language) (on behalf of Honorable Byron
Dorgan);
! extend authorization of the National Film Preservation Program in the
Library of Congress through FY2005 (offered since House and Senate
authorization bills for the program are still pending) (on behalf of
Campbell); and,
! direct the Librarian of Congress to provide an update of the Library's
efforts to handle security related issues, to identify major security
problems and vulnerabilities, and to provide the committee a report
on the Library's efforts to enhance the security of its collections
(included in LOC report language) (on behalf of Campbell).
No other amendments were considered. Later that day, the committee reported
S. 2666 (S.Rept. 108-307).
Senate Passage of FY2005 Bill (H.R. 4755, Amended to Contain S.
2666). The Senate agreed to the full Committee's total appropriation of $2.46 million
on September 21, by a vote of 94-2. The Senate passed H.R. 4755, amended to
contain the language of S. 2666, leaving intact language in H.R. 4755 funding internal
CRS-10
activities of the House. Before amending and passing H.R. 4755, the Senate agreed
by unanimous consent to four managers' amendments to S. 2666 which:
! revised language in S. 2666 authorizing the chief of the Capitol
Police to receive and submit tort claims of Senators and Senate
officers and employees against the Capitol Police to the Committee
on Rules and Administration. Original language contained the phrase
"With respect to claims within the jurisdiction of the Senate";
! revised language in S. 2666 authorizing the Capitol Police Board to
make regulations regarding the release of security information subject
to approval of the Senate Committee on Rules and Administration
and the Committee on House Administration. Original language
required approval of the Senate and House Committees on
Appropriations;
! added an administrative provision within the Open World Leadership
Center Trust Fund account to expand the program to other countries
as designed by the Center's Board of Trustees; required the Board to
notify the Senate and House Committees on Appropriations of a
designation at least 90 days before the designation takes effect; and
! added a new general provision at the end of the bill appropriating
$495,000 for the Commission on the Abraham Lincoln Study Abroad
Fellowship Program, extending the program to December 31, 2005,
and reducing by $495,000 the general administration account of the
Architect of the Capitol.
Conference Report on FY2005 Bill. The FY2005 legislative branch
appropriations bill was contained in the conference report on H.R. 4818, a
consolidated appropriations bill. Eight other unfinished appropriations bills were also
part of H.R. 4818. As agreed to in conference on November 19, and subsequently by
both houses the following day, legislative branch report language contained
! an overall increase of 1.2%, to $3.571 billion from $3.527 billion,
subject to a 0.80% rescission;16
! an increase of 5.7% in budget authority for the Capitol Police, to
$232.3 million (from $219.8 million), which enables the force to
maintain 1,592 sworn staff; and
! a decrease of 12.5% ($50.3 million) in budget authority for the
Architect of the Capitol, to $352.7 million from $403 million.
16
For a discussion of language modifying the rescission from 0.83% to to 0.80% (contained
in an enrollment correction resolution), see CRS Report RS21983, FY2005 Consolidated
Appropriations Act: Reference Guide, by Robert Keith.
CRS-11
FY2005 Legislative Branch Funding Issues
Capitol Complex Security -- U.S. Capitol Police
Funding Issues. Congress approved $232.3 million in FY2005 budget
authority for the Capitol Police, an overall increase of $12.5 million (+5.7%), from the
previous year's budget authority of $219.8 million. The agency's request was a $71.9
million (+32.7) increase to $291.6 million.17 Appropriations are contained in two
accounts:
! salaries account containing $203.4 million, a $7.0 million (+3.6%)
increase; and
! general expenses account containing $28.9 million, a $5.5 million
(23.7%) increase.
A second appropriation relating to the Capitol Police appears within the Architect
of the Capitol account for Capitol Police buildings and grounds. That funding level
is $5.9 million, a reduction from the request of $40.3 million.
Note: Details of conference report language regarding the Capitol Police will be
included in the next version of this report.
On November 20, 2004, both houses agreed to conference report language
containing $232.3 million for the U.S. Capitol Police. Conference language was
contained in Division G of H.R. 4818, the Consolidated Appropriations Act.
Capitol Complex Security -- Capitol Visitors' Center
Conferees on the FY2005 bill agreed to authorize the transfer of up to $10.6
million to the Capitol Visitors' Center (CVC) from the Capitol Building account of
the Architect of the Capitol. Conferees allotted $6 million for CVC facility
maintenance and $3.3 million for CVC start-up operations.
Earlier, on July 12, the House passed H.R. 4755, its version of the FY2005
legislative branch funding bill, without funds for the CVC. On September 21, the
Senate passed H.R. 4755, amended to contain the language of S. 2666, containing
$7.6 million for maintenance (including equipment, furniture, materials, and supplies),
start-up operations, and new staff. Although the budget request for the CVC did not
provide construction money, it contained $14.2 million for start-up operations and
maintenance. These funds were to cover an interim period during while a decision
was made on which legislative office would be responsible for the center's operation
and maintenance. The requested funds supported 35 FTE positions.
17
Effective in FY2003, appropriations for Capitol Police salaries and expenses accounts in
the annual legislative branch appropriation bill are contained in a stand-alone account.
Previously, the appropriation was contained within the joint items account. Also effective
in FY2003, a new account was created for Capitol Police buildings and grounds within the
Architect of the Capitol account.
CRS-12
The CVC request was contained in two appropriations under the Architect of the
Capitol. The first provided $6.3 million in the Capitol Building appropriation "to
procure equipment and supplies; to provide training, database management, workflow
support services, and inventory systems support; and to support, operate, and maintain
the structural, architectural, and utilities infrastructures." The second provided $8.2
million in the CVC appropriation to "cover transitional start-up costs for the
operation, administration, and management of guide services, visitor services, food
services, and gift shop services for the CVC."18
The FY2005 request followed the FY2004 appropriation of $48.6 million, which
reflected a new appropriation of $36.62 million and a transfer to the center's account
of $12 million. The transfer was made from previously appropriated funds available
for Capitol Police buildings and grounds, also funded within the AOC account.
On November 20, 2004, both houses agreed to conference report language
authorizing the transfer of $10.6 million to the Capitol Visitors' Center. Conference
language was contained in Division G of H.R. 4818, the Consolidated
Appropriations Act.
Interest in construction of the CVC reflects heightened security concerns by some
Members of Congress and the desire to make necessary appropriations available so
that construction of the center can be completed by the end of 2005. Upon completion
of furnishing the CVC and setting up exhibits, the construction barriers will be
removed in spring 2006.19 Congressional leadership broke ground for the center on
June 20, 2000, and construction began in early 2002.
Architect of the Capitol Operations
Funding Issues. FY2005 funding for the Architect of the Capitol is $352.7
million, a decrease of $50.3 million (-12.5%) from the FY2004 level of $403.0
million. The AOC requested a 45.2% increase, to $584.9 million. Neither the
FY2004 appropriation or the FY2005 request reflected one-time appropriations for the
CVC.
Operations of the Architect are funded in nine accounts. The FY2005 budget
authority for these accounts and the percentage changes from FY2004 are:
18
Testimony of the Architect of the Capitol, Alan Hantman, U.S. Congress, House
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington:
GPO, 2004), pp. 420-421. For a more detailed discussion on costs of and background on
the center, see CRS Report RL31121, The Capitol Visitors' Center: An Overview, by
Stephen Stathis.
19
Testimony of the Architect of the Capitol, Alan Hantman, U.S. Congress, House
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington:
GPO, 2004), pp. 444.
CRS-13
! general administration -- $80.4 million (+4.9% from $76.6 million);
request was a 16.5% increase;
! Capitol building -- $28.9 million (+3.0% from $28.0 million);
request was a 15.1% increase;
! Capitol grounds -- $7.0 million (+1.9% from $6.9 million); request
was an 18.0% increase;
! Senate office buildings -- $62.1 million (-1.5% from $63.0 million);
request was a 3.6% increase;
! House office buildings -- $65.4 million (+4.7% from $62.5 million);
request was a 69.2% increase;
! Capitol power plant -- $56.8 million (-29.9% from $81.1 million);
request was a 21.8% decrease;
! Library buildings and grounds -- $40.1 million (+3.0% from $38.9
million); request was a 312.8% increase;
! Capitol Police buildings and grounds -- $ 5.9 million (+78.0% from
$3.3 million; request was a 1,125.1% increase; and
! Botanic garden -- $6.3 million (+2.8% from $6.2 million); request
was an 88.3% increase.
On November 20, 2004, both houses agreed to conference report language
providing $352.7 million for the Architect of the Capitol. Conference language
was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.
House of Representatives
Overall Funding. FY2005 budget authority for House internal operations is
$1.05 billion, an increase of $40.1 million (+4.0%), less than the requested $1.07
billion, which would have provided a 5.7% increase. The approved increase primarily
funds mandatory expenses.
House Committee Funding. Funding for House committees is contained in
the appropriation heading "committee employees" that comprises two subheadings.
The first subheading contains funds for personnel and nonpersonnel expenses of
House committees, except the Appropriations Committee, as authorized by the House
in a committee expense resolution. The amount approved for FY2005 is $114.3
million, an increase of 11.8% from $102.2 million in FY2004.
The second subheading contains funds for the personnel and nonpersonnel
expenses of the Committee on Appropriations, which is $24.9 million, the same level
appropriated for FY2004.
CRS-14
On November 20, 2004, both houses agreed to conference report language
providing $1.05 billion for the House of Representatives. Conference language
was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.
Senate
Overall Funding. Congress agreed to $726.1 million for internal Senate
programs and activities, a 1.9% increase over the prior year's funding level of $712.5
million. The Senate requested $758.0 million, an increase of 6.4%. Like the House,
a significant factor in the request was funding for mandatory expenses related to
employee insurance and retirement programs.
Among increases are those for
! official personnel and office expenses of individual Senators, an
increase of 5.3% instead of the requested 10.0% increase; and
! salaries of officers and their employees and mandatory Senate
contributions to insurance and retirement programs for most Senate
employees, an increase of 5.1%, the same as requested.
Among decreases in the bill are those for
! activities of the Senate Sergeant at Arms funded under "contingent
expenses of the Senate," a decrease of 6.0%, instead of the requested
0.6% increase; and
! committee funding, a decrease of 7.1%, instead of the requested 1.7%
increase.
Senate Committee Funding. Appropriations for Senate committees are
contained in two accounts:
! the inquiries and investigations account, containing funds for all
Senate committees except Appropriations, for which $110.0 million
was approved, a 7.1% decrease in lieu of a requested 1.7% increase;
and the Committee on Appropriations account, for which $13.3
million was approved, an increase of 3.9%, the same as requested.
On November 20, 2004, both houses agreed to conference report language
providing $725.1 million for the Senate. Conference language was contained in
Division G of H.R. 4818, the Consolidated Appropriations Act.
Support Agency Funding
Congressional Budget Office. Conferees agreed to $34.9 million, which
is $129,000 more than the $34.8 million passed by both the House and Senate. The
additional amount funds increased agency costs of the employee retirement system.
The conference amount is an increase of $1.3 million (+3.9%) over the previous year's
budget, with the increase covering mandatory pay adjustments and price increases.
CRS-15
The agency requested $35.5 million, an increase of $1.8 million (5.5%).20 Most
of the request ($1.6 million) funded mandatory increases in salaries and related
benefits. This proposed funding supported 235 FTE positions, the same as for
FY2004; a 3.5% across-the-board pay adjustment for staff earning $100,000 or less;
and funding for promotions and merit adjustments for all staff, including those earning
more than $100,000; completion of the replacement of CBO's budget analysis data
system, "the agency's primary budget-tracking system, with a lower-cost, more-
capable in-house system;"21 and telecommunications services related to an alternative
computing facility.22
On November 20, 2004, both houses agreed to conference report language
providing $34.9 million for the Congressional Budget Office. Conference language
was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.
Government Accountability Office. The agency, formerly named the
General Accounting Office (GAO), received $471 million in FY2005 funding, an
increase of $13.4 million (+2.9%). Earlier, the House approved $473.5 million, and
the Senate, $470 million. As with other legislative agencies, the increase primarily
was to meet increased expenses of mandatory pay and services adjustments.
Conferees also
! withdrew the House provision that the Government Accountability
Office report on statutory responsibilities of the Congressional
Budget Office, the Congressional Research Service, the Joint
Economic Committee, and the Joint Committee on Taxation;
! supported language in the Senate report directing GAO to secure
congressional leadership support before undertaking future
technology assessments and directing the Comptroller General to
consult with the Senate Appropriations Committee regarding
guidelines to be used in technology assessments; and,
! supported Senate report language directing GAO to obtain the
necessary equipment for testing and evaluation of the agency's ability
to detect threats of chemical, biological, and explosive agents.
The FY2005 request of $486.7 million reflected a direct appropriation of $480.5
million and authority to use $6.1 million in revenues from "reimbursable audit work
20
Testimony of CBO Director Douglas Holtz-Eakin, in U.S. Congress, Senate Committee
on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations
for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (Washington: GPO, 2004), pp. 42-
43.
21
Ibid.
22
Previously, telecommunications costs were paid from the budget of the House of
Representatives.
CRS-16
and rental income."23 The new budget authority request was a 5.0% increase over
FY2004.
Based on a congressional directive to the agency to undertake technology
assessments, GAO requested $545,000 for four new FTE positions and contract
support to establish "a baseline technology assessment capability," allowing GAO to
conduct one assessment per year.
During Senate Appropriations Committee testimony, the comptroller general
(GAO head) noted that his FY2005 budget supported an authorized staff level of
3,269 FTEs.
On November 20, 2004, both houses agreed to conference report language
providing $471 million for the Government Accountability Office. Conference
report was contained in Division G of H.R. 4818, the Consolidated Appropriations
Act.
Library of Congress. Conferees agreed to $549.8 million for the Library of
Congress (LOC), including the Congressional Research Service, an increase of $26.8
million (+5.1). The House and Senate previously agreed to $543.5 million and $544.1
million, respectively. Conferees also authorized two FTE positions in the Office of
Inspector General to assist in information technology security audits, and reduced the
number of FTEs by three.
LOC requested an appropriation of $562.6 million, an increase of $39.6 million
(7.6%) from the FY2004 appropriation of $523.0 million.24 In addition, the Librarian
of Congress requested authority to use $39.7 million from receipts.
According to the Librarian, the request reflected the Library's priorities to initiate
operations of the National Audio Visual Conservation Center; to support the
Copyright Office's reengineering efforts; to "regain full funding for the Congressional
Research Service staff capacity at 729 full-time-equivalent (FTE) positions;" to
support conversion to digital talking book technology for the blind and physically
handicapped; to fund a mass deacidification program; to support the Veterans History
Program; to insure additional systems, staff, buildings, and collections security; and
to provide infrastructure support.25
23
Testimony of GAO Comptroller General David Walker, in U.S. Congress, Senate
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (Washington:
GPO, 2004), pp. 3-18.
24
Both figures include appropriations for the Congressional Research Service.
25
Testimony of Librarian of Congress James Billington, in U.S. Congress, House
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington:
GPO, 2004), p. 250.
CRS-17
LOC's request supported 4,363 FTE positions (including CRS), an increase of
80 from FY2004, primarily to meet collections, security, and management needs.
On November 20, 2004, both houses agreed to conference report language
providing $549.8 million for the Library of Congress, including the Congressional
Research Service. Conference language was contained in Division G of H.R. 4818,
the Consolidated Appropriations Act.
Congressional Research Service. Both houses agreed to $96.9 million for
the Congressional Research Service, an increase of $5.7 million (+6.3%), covering
mandatory pay and retirement costs and increased expenses of goods and services.
Earlier, the House approved $96.4 million, and the Senate agreed to $96.7 million.
The agency's request of $100.9 million contained $4.3 million for mandatory pay
and price level increases, and $5.4 million to support, among other functions, a staff
level of 729 FTE positions, off-site computer back-up facilities ($622,000),26
improvements in the Legislative Information System (LIS) ($549,000),27 and
procurement of research materials ($1 million).28 A request of $412,000 funded a
pilot program for repayment of higher education loans in an effort to retain staff.
The CRS director noted during hearings on the agency's FY2005 budget that
without an additional one-time $2.71 million appropriation, the CRS budget base
would support 704 FTE positions. This translated to a reduction of 25 FTE positions,
attained through attrition without replacements.29
On November 20, 2004, both houses agreed to conference report language
providing $96.9 million for the Congressional Research Service. Conference
language was contained in Division G of H.R. 4818, the Consolidated
Appropriations Act.
Government Printing Office. Conferees agreed to $120.8 million for the
agency, a reduction of $14 million (-10.4%). The House earlier agreed to $121.3
26
These facilities are to ensure continuity of operations during an emergency situation.
27
These funds will enable implementation of a data standard (XML) in preparation of
congressional documents for the Legislative Information System (LIS) to ensure parity of
CRS with the House and Senate. The XML data standard was authorized by the Committee
on House Administration and the Senate Committee on Rules and Administration for all
congressional documents.
28
Written testimony of CRS Director Daniel Mulhollan, in U.S. Congress, Senate
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 11, 2004 (not yet
published).
29
The request for a one-time appropriation would cover a funding gap created during recent
years in which mandatory appropriations made to cover increased pay and related benefits
costs were less than the actual costs to CRS.
CRS-18
million, and the Senate to $120.7 million. The agency's request was a 12.1% increase.
The current appropriation, contained in two accounts: congressional printing and
binding and Office of Superintendent of Documents (salaries and expenses), follows:
! Congressional printing and binding -- $88.8 million, a decrease of
$1.8 million (-2.0%) over the FY2004 appropriation of $90.6
million; and,
! Office of Superintendent of Documents (salaries and expenses) --
$32.0 million, a decrease of $2.3 million (-6.7%) from $34.3 million.
Conferees agreed to a FTE limit of 2,621, proposed by the Senate, in lieu of
2,889 proposed by the House; expressed support for public access to Federal
Depository Libraries; and revised the price discount on GPO publications.
The agency's FY2005 request contained funds in two additional accounts: (1) the
Office of Inspector General -- $4.2 million (a new account in FY2005); and (2)
Government Printing Office Revolving Fund -- $25.0 million, an increase of $15.1
million, or 151.5%. The public printer requested that the Office of Inspector General
be funded directly, not through the revolving fund, and that appropriations to the
revolving fund allow implementation of "a multi-year plan to transform the
information technology used at the GPO" to meet "Federal agency customer
requirements for printed and digital documents" and "the public's increasing demand
for authenticated, official government information to be available from the Internet."30
Among legislative changes requested by GPO were those to extend incentives for
early retirement and separation (current provisions expire September 30, 2004);
authorize $500,000 for contracts of "expert services to assist us in our effort to
relocate the GPO and to finance this project through redevelopment of our existing
structures;" and authorize GPO to accept contributions of property, equipment, and
services.
On November 20, 2004, both houses agreed to conference report language
providing $120.8 million for the Government Printing Office. Conference language
was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.
30
Written testimony of GPO Public Printer Bruce James, in U.S. Congress, Senate
Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch
Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (not yet
published).
CRS-19
Table 3. Legislative Branch Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)
FY2004 Enacted FY2005 House Bill
FY2005 Senate FY2005
Entity (adjusted for .59% FY2005 Request As Reported and
Bill As Passed Conference
rescission)a Passed
Title 1: Legislative Branch Appropriations
Senate $712,488 $759,708 --d $725,067 $726,067
g
House of Representatives 1,008,479 1,066,344 1,044,281 -- 1,048,581
Joint Items 19,066 19,017 18,974 19,017 18,974
Capitol Policeb 219,795 291,641 232,328 226,925h 232,328
Office of Compliance 2,242 2,950 2,421 2,421 2,421
Congressional Budget Office 33,620 35,455 34,790 34,790 34,919
Architect of the Capitol 402,976 584,944 271,666 e 307,547i 352,724
Library of Congress, Including Congressional Research
Service 523,001 562,631 543,488 544,092 549,760
Congressional Research Service (91,185) (100,934) (96,385) (96,678) (96,893)
Congressional Printing Office 134,767 151,058 121,324 120,735 120,753
Government Accountability Office 457,606 480,535 473,500 470,000 470,973
c
Open World Leadership Center 13,420 15,000 6,750 13,500 13,500
Subtotal, Title 1 3,527,460 3,969,283 2,749,522 2,464,094 3,571,000
Title II: General Provisions
Abraham Lincoln Study Abroad Fellowship Program 0 0 0 495 0
Subtotal, Title II 0 0 0 495 0
Total Legislative Branch (Titles I and II) 3,527,460 3,969,283 2,749,522f 2,464,589j 3,571,000
CRS-20
Source: House Committee on Appropriations and Senate Committee on Appropriations (the latter for FY2005 request for Senate activities and FY2005 Senate bill as reported.
Table contains budget amendments of May 6, 2004, to the FY2005 budget request for an additional $2.7 million in net discretionary resources, including funds for the Senate
($1.7 million), Joint Economic Committee ($4,000), Capitol Guide Service and Special Services Office ($5,000), Library of Congress Copyright Office ($810,000), and
Congressional Research Service ($200,000).
a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain appropriations were
contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.
b. This is a new account, effective with the FY2003 Legislative Branch Appropriation Act. Previously, Capitol Police funds were contained under the joint items account.
c. The center was named the Russian Leadership Program prior to FY2004.
d. The House does not consider appropriations for internal Senate operations.
e. The House does not consider appropriations for Senate office buildings contained in the budget of the Architect of the Capitol.
f. This figure does not contain funds for internal Senate operations, which are funded in a separate account, or for Senate office buildings, which are contained in the budget
of the Architect of the Capitol. The Senate determines funding levels of these two accounts.
g. The Senate does not consider appropriations for internal House operations.
h. In addition, the Senate Committee on Appropriations directed that $12.815 million of prior-year funds be made available "to support personnel requirements" (S.Rept. 108-
307, 108th Cong.).
i. The Senate does not consider appropriations for House office buildings contained in the budget of the Architect of the Capitol.
j. This figure does not contain funds for internal House operations, which are funded in a separate account, or for House office buildings, which are contained in the budget
of the Architect of the Capitol. The House determines the funding levels of these two accounts.
CRS-21
Table 4. Capitol Police Appropriations, FY2005
(H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conf. figures are subject to a 0.80% rescission)
FY2005 FY2005
FY2004 Enacted
FY2005 House Bill Senate Bill FY2005
(adjusted for
Accounts Request As Reported As Conference
0.59% rescission)a
and Passed Reported
Salaries, Capitol Police $196,434 -- $203,440 198,000 203,440
General Expenses 23,361 -- 28,888 28,925 28,888
Salaries and General
Expenses (combined in
FY2005 request) -- 291,641 -- -- --
Total, Capitol Police 219,795 291,641 232,328 226,925 232,328
Source: House and Senate Committees on Appropriations
a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act.
Additional FY2004 provisions, that did not contain appropriations, were contained in P.L. 108-
199, the FY2004 Consolidated Appropriations Act.
CRS-22
Table 5. Architect of the Capitol Appropriations, FY2005
(H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conf. figures are subject to a 0.80% rescission)
FY2004
FY2005
Enacted FY2005
FY2005 House Bill FY2005
Accounts (adjusted for Senate Bill,
Request As Reported Conference
0.59% As Reported
and Passed
rescission)a
Architect of the Capitol
General administration $76,598 $89,245 79,581 74,063 80,347
Capitol building 28,021 32,239 18,185 24,784 28,857
Capitol Grounds 6,846 8,080 7,033 6,940 6,974
c
Senate office buildings 63,014 65,309 -- 62,303 62,083
e
House office buildings 62,445 105,675 65,130 -- 65,353
Capitol power plant 81,062 63,376 56,139 60,928 56,834
Library buildings and grounds 38,928 160,678 34,783 65,145 40,097
Capitol Police buildings and grounds 3,289 40,292 4,883 7,090 5,853
Transfer Out (-12,000)
Botanic garden 6,152 11,581 5,932 6,294 6,326
b
Capitol Visitors' Center 36,621 8,469 0 0 0
Transfer In (+12,000)
Total, Architect of the Capitol 402,976 584,944 271,666d 307,547f 352,724
Source: House and Senate Committees on Appropriations
a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional
non-funding provisions were contained in P.L. 108-199, FY2004 Consolidated Appropriations Act.
b. An additional $6.3 million is contained under the Capitol Building appropriation of the Architect of the
Capitol.
c. The House does not consider appropriations for Senate office buildings.
d. This figure does not include appropriations for Senate office buildings.
e. The Senate does not consider appropriations for House office buildings.
f. This figure does not include appropriations for House office buildings.
CRS-23
Table 6. Senate Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)
Enacted FY2005
FY2005
FY2004 FY2005 House FY2005
Accountsa Senate
(adj. for 0.59% Request As Reported Conference
As Reported
rescission)b and Passed
Expense Allowances and Representation 158 158 -- 158 225
Salaries, Officers, and Employees 125,307 134,440 -- 134,440 134,840
Office of Legislative Counsel 4,843 5,152 -- 5,152 5,152
Office of Legal Counsel 1,222 1,265 -- 1,265 1,265
Expense Allowances for Secretary of Senate, et al. 24 24 -- 24 24
Contingent Expenses (subtotal) 580,934 618,669 -- 584,028 584,561
Inquiries and Investigations 118,462 120,435 -- 110,000 110,000
Senate Intl. Narcotics Caucus 520 520 -- 520 520
c
Secretary of the Senate 2,265 1,700 -- 1,700 1,700
d
Sergeant at Arms/Doorkeeper 135,243 136,066 -- 127,182 127,182
Miscellaneous Items 18,425 18,676 -- 18,326 18,326
Senators' Official Personnel and
Office Expense Account 305,719e 340,972 -- 326,000 326,533
Official Mail Costs 300 300 -- 300 300
Total, Senate 712,488 759,708 -- 725,067 726,067
Source: House and Senate Committees on Appropriations.
a. The Senate account contains seven appropriations headings, which are highlighted in bold.
b. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain appropriations were
contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.
c. Office operations of the Office of the Secretary of the Senate are also funded under "Salaries, Officers, and Employees."
d. Activities of the Office of Sergeant at Arms and Doorkeeper are also funded under "Salaries, Officers, and Employees."
e. This figure reflects a 0.59% rescission of $4.281 million from the appropriation of $310 million.
CRS-24
Table 7. House of Representatives Appropriations, FY2005
(H.R. 4755; H.R. 4818, Division G of P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 figures are subject to a 0.80% rescission)
FY2004 Enacted FY2005 House
FY2005 FY2005 Senate FY2005
Accountsa (adjusted for As Reported
Request As Reported Conference
0.59% rescission)b and Passed
Payments Heirs of Deceased Members of Congress 0 0 0 -- 0
Salaries and Expenses, Total 1,008,479 1,066,344 1,044,281 -- 1,048,581
House Leadership Offices 18,142 18,678 18,678 -- 18,678
Members' Representational
Allowancesc 514,454 529,258 521,195 -- 521,195
d
Committee Employees (subtotal) 127,129 140,479 139,225 -- 139,225
Standing Committees, Special and Select, except
Appropriations 102,203 114,955 114,299 -- 114,299
Appropriations Committee 24,926 25,524 24,926 -- 24,926
Salaries, Officers, and Employees (subtotal) 156,896 170,861 160,133 -- 160,133
Office of the Clerk 19,452 20,553 20,534 -- 20,534
Office of the Sergeant at Arms 5,471 5,887 5,879 -- 5,879
Office of Chief Administrative Officer 111,141 121,699 116,034 -- 116,034
Office of Inspector General 3,847 4,022 3,986 -- 3,986
Office for Emergency Planning, Preparedness,
and Operations 5,200 6,000 1,000 -- 1,000
Office of General Counsel 926 962 962 -- 962
Office of the Chaplain 153 155 155 -- 155
Office of the Parliamentarian (subtotal) 1,560 1,673 1,673 -- 1,673
Office of the Parliamentarian (1,363) (1,459) (1,459) -- (1,459)
CRS-25
FY2004 Enacted FY2005 House
FY2005 FY2005 Senate FY2005
Accountsa (adjusted for As Reported
Request As Reported Conference
0.59% rescission)b and Passed
Compilation of House Precedents (197) (214) (214) -- (214)
Office of the Law Revision Counsel 2,263 2,346 2,346 -- 2,346
Office of the Legislative Counsel 6,233 6,721 6,721 -- 6,721
Office of Interparliamentary Affairs 500 687 687 -- 687
Other Authorized Employees: Technical
Assistants, Office of Attending Physician 150 156 156 -- 156
Allowances and Expenses (subtotal) 191,858 207,068 205,050 -- 209,350
Supplies, Materials, Administrative Costs and
Federal Tort Claims 3,975 4,618 4,350 -- 4,350
Official Mail for committees, leadership,
administrative and legislative offices 410 410 410 -- 410
Government Contributions 186,783 201,350 199,600 -- 203,900
Miscellaneous Items 690 690 690 -- 690
House of Representatives, Total 1,088,479 1,066,344 1,044,281 -- 1,048,581
Sources: House Committee on Appropriations.
a. The appropriations bill contains two House accounts: (1) payments to widows and heirs of deceased Members of Congress and (2) salaries and expenses.
b. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain
appropriations were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.
c. 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.
d. 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).
CRS-26
For Additional Reading
CRS Reports
CRS Report RL31812. Legislative Branch Appropriations for FY2004, by Paul
Dwyer.
CRS Report RL31312. Legislative Branch Appropriations for FY2003, by Paul
Dwyer.
Selected Websites
These sites contain information on the FY2003 and FY2004 legislative branch
appropriations requests and legislation, and the appropriations process.
House Committee on Appropriations
[http://appropriations.house.gov/]
Senate Committee on Appropriations
[http://appropriations.senate.gov/]
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/]
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