Transportation, Housing and Urban Development, and Related Agencies (THUD) Appropriations for FY2025
Congressional research reportMay 7, 2026
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Transportation, Housing and Urban
Development, and Related Agencies (THUD)
Appropriations for FY2025
Updated May 7, 2026
Congressional Research Service
https://crsreports.congress.gov
R48253
SUMMARY
Transportation, Housing and Urban
Development, and Related Agencies (THUD)
Appropriations for FY2025
The House and the Senate Transportation, Housing and Urban Development, and Related
Agencies (THUD) Appropriations Subcommittees are charged with providing annual
appropriations for the U.S. Department of Transportation (DOT), the U.S. Department of
Housing and Urban Development (HUD), and certain related agencies.
R48253
May 7, 2026
Maggie McCarty,
Coordinator
Specialist in Housing Policy
Jennifer J. Marshall
Analyst in Transportation
Policy
The FY2025 appropriations process began with the release of the President’s budget request to
Congress on March 11, 2024. For the agencies that comprise the THUD budget, it proposed the
following:
•
For DOT, $106.4 billion in total funding (the same as FY2024), including $25.5 billion in discretionary
funding (-5.6% relative to FY2024) and $80.9 billion in mandatory funding (+2% relative to FY2024).
•
For HUD, $64.3 billion in discretionary funding (-8.3% relative to FY2024), which includes $10.4 billion
in emergency funding for regular program operations.
•
For related agencies, $462 million in discretionary funding (+8.1% relative to FY2024).
On July 10, the House Appropriations Committee marked up and ordered reported its FY2025 THUD appropriations bill
(H.R. 9028; H.Rept. 118-584), following subcommittee markup on June 27. It included the following:
•
For DOT, $106.7 billion in total funding (nearly even with FY2024), including $25.1 billion in
discretionary funding (-6.9% relative to FY2024) and $81.5 billion in mandatory funding (+2.7% relative to
FY2024).
•
For HUD, $64.8 billion (-7.5% relative to FY2024 when including emergency funding for regular program
operations provided in FY2024; +4.4% when excluding that emergency funding).
•
For related agencies, $442 million (+3.3% relative to FY2024).
Forgoing initial subcommittee markup, the Senate Appropriations Committee marked up and ordered reported its FY2025
THUD appropriations bill (S. 4796; S.Rept. 118-199) on July 25. It included the following:
•
For DOT, $110.1 billion in total funding (+3.5% relative to FY2024), including $28.5 billion in
discretionary funding (+5.6% relative to FY2024) and $81.6 billion in mandatory funding (+2.8% relative
to FY2024).
•
For HUD, $58.8 billion in regular appropriations and $11 billion in emergency designated funding for
regular program operations, for a combined total of $69.8 billion (<1% decrease relative to FY2024).
•
For related agencies, $454 million (+6.1% relative to FY2024).
On September 26, 2024 the Continuing Appropriations and Extensions Act, 2025, was signed into law (H.R. 9747; P.L. 11883). Division A was a continuing resolution that maintained funding for federal agencies, including those typically funded in
the THUD appropriations legislation, at FY2024 levels through December 20, 2024, with some anomalies. That CR was
extended through March 14, 2025, by Division A of P.L. 118-83. Before the expiration of the second CR, Congress approved
and the President signed a full-year CR (P.L. 119-4), funding most THUD accounts in FY2025 at their FY2024 levels, with
some exceptions, also referred to as anomalies.
Congressional Research Service
FY2025 THUD Appropriations
Contents
About the THUD Bill ...................................................................................................................... 1
Overview of the FY2025 Appropriations Process ........................................................................... 2
President’s Budget..................................................................................................................... 2
House Action ............................................................................................................................. 2
Senate Action ............................................................................................................................ 3
Enactment of a Full-Year Continuing Resolution ..................................................................... 3
Department of Transportation.......................................................................................................... 4
Selected FY2025 DOT Appropriations Topics.......................................................................... 9
National Infrastructure Investments (Mega/RAISE Grants) ............................................... 9
Federal Railroad Administration ....................................................................................... 10
Federal Transit Administration ......................................................................................... 10
Maritime Administration .................................................................................................... 11
Earmarks ............................................................................................................................ 11
Sources of FY2024 Enacted Budget Authority ................................................................. 12
Department of Housing and Urban Development ......................................................................... 13
Overview ................................................................................................................................. 13
Selected FY2025 HUD Appropriations Topics ....................................................................... 17
Emergency-Designated Funding for Rental Assistance Renewals ................................... 17
House-Proposed Cut to the HOME Investment Partnerships Program............................. 18
General Provisions ............................................................................................................ 19
THUD Related Agencies ............................................................................................................... 21
Figures
Figure 1. Distribution of THUD Funding by Title .......................................................................... 1
Figure 2. Rental Assistance Renewal Funding .............................................................................. 18
Tables
Table 1. THUD Appropriations by Bill Title, FY2024-FY2025...................................................... 3
Table 2. Department of Transportation, FY2024-FY2025 Detailed Appropriations ....................... 5
Table 3. Department of Transportation, FY2024-FY2025 Community Project
Funding/Congressionally Directed Spending ............................................................................. 12
Table 4. Department of Transportation Budget Authority by Source, FY2024 ............................. 13
Table 5. Department of Housing and Urban Development,
FY2024-FY2025 Detailed Appropriations ................................................................................. 14
Table 6. THUD Related Agencies, FY2024-FY2025 Detailed Appropriations ............................ 22
Table A-1. FY2025 THUD 302(b) Suballocations, in Context ..................................................... 24
Congressional Research Service
FY2025 THUD Appropriations
Appendixes
Appendix. Overview of the FY2025 Budget Process.................................................................... 23
Contacts
Author Information........................................................................................................................ 25
Congressional Research Service
FY2025 THUD Appropriations
T
he House and the Senate Transportation, Housing and Urban Development, and Related
Agencies (THUD) Appropriations Subcommittees are charged with providing annual
appropriations for the U.S. Department of Transportation (DOT), the U.S. Department of
Housing and Urban Development (HUD), and certain related agencies.
This report describes action on FY2025 annual appropriations for THUD, including detailed
tables for each major agency and a brief overview of selected issues.
About the THUD Bill
The THUD bill funds two federal departments—DOT and HUD—and several smaller related
agencies. Of the 12 regular appropriations bills, THUD is typically the fourth largest in terms of
discretionary funding and it typically contains the largest number of Community Project Funding
or Congressionally Directed Spending projects (earmarks).1
As shown in Table 1 and Figure 1, the distribution of funding within the THUD bill differs
depending on the inclusion or exclusion of mandatory funding associated with the bill. Including
both mandatory and discretionary funding, DOT’s budget is larger than that of HUD’s and the
related agencies make up a small share of total funding. Conversely, when looking only at net
discretionary budget authority—the funding that counts for congressional scorekeeping purposes,
which accounts for savings from offsets and rescissions but excludes mandatory funding—HUD’s
share is larger than DOT’s share.
Figure 1. Distribution of THUD Funding by Title
FY2024 Enacted
Sources: Comparative Statement of New Budget (Obligational) Authority table, as published in H.Rept. 118584, as well as congressional budget justifications.
Note: Excludes emergency funding, such as emergency funding provided for regular program operations.
1 For more information, see CRS Report RS22866, Earmark Disclosure Rules in the House: Member and Committee
Requirements; and CRS Report RS22867, Earmark Disclosure Rules in the Senate: Member and Committee
Requirements.
Congressional Research Service
1
FY2025 THUD Appropriations
Overview of the FY2025 Appropriations Process
Appropriations for DOT, HUD, and the related agencies typically funded in the THUD bill
happen in the context of the broader annual congressional appropriations process. That process
generally begins with the submission of the President’s budget request, followed by adoption of
congressional spending limits (generally, in a budget resolution) that set the overall level of
spending for that fiscal year’s appropriations bills. From there, the subcommittees of the House
and the Senate Appropriations Committees generally begin action on each of the 12
appropriations bills based on their subcommittee allocations (referred to as 302(b) allocations).
(For more information, see the Appendix.)
While each bill reported out of the House and the Senate Appropriations Committees may receive
floor consideration individually, in recent years it has been more common for bills to be
considered in combination with one another in consolidated or omnibus appropriations acts.
The following sections summarize FY2025 appropriations actions; Table 1 tracks FY2025 THUD
funding at the bill title level, compared to FY2024.
President’s Budget
The President’s budget request for FY2025 was released on March 11, 2024. For the agencies that
comprise the THUD budget, it proposed the following:
•
•
•
For DOT, $106.4 billion in total funding for FY2025 (the same as FY2024),
including $25.5 billion in discretionary funding (-5.6% relative to FY2024) and
$80.9 billion in mandatory funding (+2% relative to FY2024).
For HUD, $64.3 billion in discretionary funding (-8.3% relative to FY2024)
including $10.4 billion in emergency funding for regular program operations.
• In terms of gross appropriations—not accounting for savings from offsets
and rescissions—the President’s budget requested a decrease of 3.9%, or just
under $3 billion. Much of this decrease is attributable to the President’s
budget including no new funding for Economic Development Initiatives;
they received nearly $3.3 billion in FY2024, all of which was for earmarks.
For related agencies, $462 million (+8.1% relative to FY2024).
House Action
On July 10, the House Appropriations Committee marked up and ordered reported its FY2025
THUD appropriations bill (H.R. 9028; H.Rept. 118-584), following subcommittee markup on
June 27. It included the following:
•
•
•
For DOT, $106.7 billion in total funding for FY2025 (nearly the same as
FY2024), including $25.1 billion in discretionary funding (-6.9% relative to
FY2024) and $81.5 billion in mandatory funding (+2.7% relative to FY2024).
For HUD, $64.8 billion (-7.5% relative to FY2024 when including emergency
funding for regular program operations provided in FY2024; +4.4% when
excluding that emergency funding).
For related agencies, $442 million (+3.3% relative to FY2024).
Congressional Research Service
2
FY2025 THUD Appropriations
Senate Action
Forgoing subcommittee consideration, the Senate Appropriations Committee marked up and
ordered reported its FY2025 THUD appropriations bill (S. 4796; S.Rept. 118-199) on July 25. It
included the following:
•
For DOT, $110.1 billion in total funding for FY2025 (+3.5% relative to FY2024),
including $28.5 billion in discretionary funding (+5.6% relative to FY2024) and
$81.6 billion in mandatory funding (+2.7% relative to FY2024).
For HUD, $58.8 billion in regular appropriations and $11 billion in emergency
designated funding for regular program operations, for a combined total of $69.8
billion (<1% decrease relative to FY2024).
For related agencies, $454 million (+6.1% relative to FY2024).
•
•
Enactment of a Full-Year Continuing Resolution
Following enactment of two short-term continuing resolutions, on March 15, 2025, the President
signed into law H.R. 1968—the Full-Year Continuing Appropriations and Extensions Act, 2025—
as P.L. 119-4. Division A of the act—the Full-Year Continuing Appropriations Act, 2025—
provided continuing appropriations for all 12 regular appropriations acts through the end of
FY2025. While most accounts were funded at their FY2024 levels under the terms of the
continuing resolution (CR), some exceptions—referred to as anomalies—relevant for THUD
were adopted, including:
•
•
Elimination of all earmark funding, including for HUD and DOT, in FY2025.
Increased obligation limits for DOT’s Highway Trust Fund and Federal Aviation
Administration (FAA) Grants-in-Aid for Airports.
Increased funding for DOT’s Payments to Air Carriers and FAA Operations
accounts.
Increased funding for HUD’s rental assistance program accounts.
Increased funding for the National Transportation Safety Board (NTSB).
•
•
•
For more information about the FY2025 CR, see CRS Report R48517, Section-by-Section
Summary of the Full-Year Continuing Appropriations Act, 2025 (Division A of P.L. 119-4).
Table 1. THUD Appropriations by Bill Title, FY2024-FY2025
(dollars in millions)
FY2024
Enacted
Title I: DOT
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Enacted
106,365
106,413
106,671
110,080
106,785
Discretionary
26,987
25,468
25,132
28,485
25,246
Mandatory
79,378
80,945
81,539
81,595
81,539
62,069a
53,887b
64,827
58,768
60,690a
428
462
442
454
433
168,862
160,763
171,939
169,302
167,908
89,484
79,818
90,400
87,707
86,369
Title II: HUD
Title III: Related Agencies
Total
Total Discretionary
Congressional Research Service
3
FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Enacted
Total Mandatory
79,378
80,945
81,539
81,595
81,539
Emergency Appropriations for
Regular Program Operations
8,000
10,371
0
11,030
8,000
Emergency Disaster Funding
0
—c
0
0
20,125d
Sources: FY2024 Enacted, FY2025 President’s Request, and FY2025 House figures are taken from the
Comparative Statement of New Budget (Obligational) Authority table, as published in H.Rept. 118-584, as well as
congressional budget justifications. FY2025 Senate figures are taken from the Comparative Statement of New
(Obligational) Budget Authority table, as published in S.Rept. 118-199. FY2025 enacted figures are taken from the
funding table in Book II of the Explanatory Statement published in the January 22, 2026 Congressional Record (pp.
H1888-H1909). Some figures have been adjusted for comparability.
Notes: Values may not sum to totals or exactly match source materials because of rounding. Amounts noted as
“emergency” are excluded when calculating total funds countable toward 302(b) allocations.
a. Excludes $8 billion in appropriations for rental assistance programs designated as emergency spending in the
bill, shown under “Emergency Appropriations” later in this table.
b. Excludes $10.4 billion in appropriations for rental assistance programs the President’s budget requested be
designated as emergency spending, shown under “Emergency Appropriations” later in this table.
c. On June 28, 2024, the President submitted a supplemental request to Congress including $700 million for
HUD to provide assistance for communities affected by disasters in 2023 and $3.1 billion for DOT to
address emergencies including the Francis Scott Key Bridge collapse.
d. Division B of P.L. 118-158 (the law that contained in Division A the second FY2025 continuing resolution)
provided $8 billion for FHWA’s Emergency Relief Program, which funds the repair or replacement of
disaster-damaged highway infrastructure such as the Francis Scott Key Bridge in Maryland and $12 billion in
emergency funding for HUD Community Development Fund for assistance in response to natural disasters
that occurred in 2023 or 2024.
Department of Transportation
Among its many responsibilities, DOT operates the nation’s air traffic control system; regulates
aviation, commercial trucking, and motor vehicle safety; and provides grants to support aviation,
highway, transit, and passenger rail infrastructure as well as highway, maritime, and pipeline
safety.
The majority of DOT’s annual funding is established by two periodic authorization acts, one for
surface transportation programs and one for aviation programs. Most of the funding for the
programs in those acts is drawn from the DOT Highway Trust Fund (HTF) and the Aviation and
Airways Trust Fund (AATF), respectively. HTF revenues come largely from fuel taxes and
increasingly from transfers from the general fund of the Treasury. AATF revenues come largely
from taxes on passenger tickets and aviation fuel and some general fund money.
Most of the funding drawn from the HTF, and a portion of the funding drawn from the AATF, is
in the form of contract authority, a type of budget authority that is considered mandatory (rather
than discretionary). The THUD bill includes obligation limitations on this mandatory budget
authority; it does not count against the THUD bill’s 302(b) discretionary suballocation or the
statutory discretionary spending limits under the Fiscal Responsibility Act of 2023 (FRA; P.L.
118-5). DOT’s discretionary appropriation for FY2024 was $27 billion, and the agency also
received $79 billion in new mandatory funding from its trust funds, for a total of $106 billion in
new budget authority (roughly equal to FY2023). DOT also received an additional $37 billion in
advance appropriations for FY2024 from the Infrastructure Investment and Jobs Act (IIJA; P.L.
Congressional Research Service
4
FY2025 THUD Appropriations
117-58), for a grand total of $143 billion in newly available funding for FY2024 (about the same
as FY2023).
Table 2 provides detailed appropriations information for DOT accounts and selected subaccounts,
comparing FY2024 enacted to FY2025 requested, proposed, and enacted.
Components of DOT Funding
DOT’s budget is made up of a combination of mandatory funding largely provided outside the annual appropriations
acts via authorizing statutes and discretionary budget authority largely provided in the annual THUD appropriations
acts.
DOT’s mandatory funding includes contract authority, which is a special type of budget authority linked to trust
funds that is authorized for obligation via an authorization act (such as surface transportation acts) that does not
require further congressional action for DOT to incur obligations. This type of budget authority is considered to
be mandatory spending. Congress typically sets a limitation on obligations of this mandatory budget authority
during the annual appropriations process.
DOT uses two main trust funds: the Highway Trust Fund (HTF) and the Airport and Airways Trust Fund (AATF).
The majority of programs that are administered by the Federal Highway Administration, Federal Transit
Administration, Federal Motor Carrier Safety Administration, and National Highway Traffic Safety Administration
are funded via the HTF. Some programs administered by the Federal Aviation Administration are funded by the
AATF. Some of the funding from the AATF is disbursed as contract authority (mandatory), but the majority relies
on an appropriation (discretionary).
Additionally, DOT received multi-year, supplemental, emergency-designated advance appropriations under
Division J of the IIJA for each of FY2022-FY2026.
The cost of the new discretionary budget authority provided via annual appropriations acts—as determined by the
Congressional Budget Office’s (CBO’s) scorekeeping process—may be offset, to some degree, by savings derived
from collections from user fees and rescissions of prior-year appropriations. Deducting the savings from fees and
rescissions from the gross discretionary budget authority provided to DOT results in net discretionary budget authority.
Generally, gross discretionary budget authority, along with mandatory funding available in a fiscal year, is the most
useful measure of the new resources being provided for DOT’s programs and activities, whereas net discretionary
budget authority is used for budget enforcement purposes and measuring against 302(b) allocations.
Any funding designated as an emergency requirement provided in the regular annual appropriations acts or in
supplemental spending bills is generally excluded from totals for purposes of budget enforcement.
Table 2. Department of Transportation, FY2024-FY2025 Detailed Appropriations
(dollars in millions)
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
Office of the Secretary (OST)
1,067
870
807
1,426
1,168
Salaries and Expenses
191
210
199
210
191
Research and Technology
49
62
50
57
49
National Infrastructure Investments
345
0
0
550
345
Transportation Infrastructure
Finance and Innovation Act
Repurposing (non-add)
—
-800
0
0
—
National Infrastructure Investments
Transfer (non-add)
—
800
0
0
—
Thriving Communities Initiative
—
25
0
0
—
Administrations and Accounts
FY2025
Enacted
Appropriations
Congressional Research Service
5
FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
National Surface Transportation and
Innovation Finance Bureau
10
11
11
11
10
Rural and Tribal Infrastructure
Advancement
25
0
0
25
25
Railroad Rehabilitation and
Improvement Program (negative
subsidy)
-3
—
—
—
—
Financial Management Capital
5
5
5
5
5
Cyber Security Initiatives
49
75
75
75
49
Office of Civil Rights
18
22
18
18
18
Transportation Planning, Research,
and Development
24
25
21
46
21**
Community Project
Funding/Congressionally Directed
Spending (non-add)
3
0
0
11
0**
Working Capital Fund (non-add)
522
496
496
496
522
Small and Disadvantaged Business
Utilization and Outreach
5
7
6
7
5
Payments to Air Carriers (Essential
Air Service)
349
423
423
423
450**
Essential Air Service (Overflight
Fees) (non-add)
154
164
164
164
162b
Electric Vehicle Fleet
—
5
0
0
—
16,733
17,453
17,657
18,015
16,989
Operations
12,730
13,603
13,588
13,603
13,483**
Facilities & Equipment
3,191
3,600
3,549
3,600
3,176**
Community Project
Funding/Congressionally Directed
Spending (non-add)
15
0
0
0
0**
Research, Engineering, and
Development (Airport and Airways
Trust Fund)
280
250
260
290
280
Airport Discretionary Grants
532
0
261
521
50**
482
0
258
221
0**
Federal Highway Administration
(FHWA)
2,225
0
1,490
1,117
341
Highway Infrastructure Programs
2,225
0
1,490
1,117
341**
1,884
0
1,085
568
0**
Administrations and Accounts
Federal Aviation Administration
(FAA)
Community Project
Funding/Congressionally Directed
Spending (non-add)
Community Project
Funding/Congressionally Directed
Spending (non-add)
Congressional Research Service
FY2025
Enacted
6
FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
National Highway Traffic Safety
Administration (NHTSA)
223
248
235
248
223
Operations and Research
223
248
235
248
223
Federal Railroad Administration
(FRA)
3,024
3,200
2,758
3,461
2,925
Safety and Operations
268
294
288
293
268
Railroad Research and
Development
54
52
46
55
54
Federal-State Partnership for
Intercity Passenger Rail
75
100
0
100
75
Consolidated Rail Infrastructure and
Safety Improvements
199
250
299
376
100**
Community Project
Funding/Congressionally Directed
Spending (non-add)
99
0
39
76
0**
2,428
2,504
2,125
2,638
2,428
Northeast Corridor
1,141
1,200
1,002
1,021
1,141
National Network
1,286
1,304
1,123
1,617
1,286
Federal Transit Administration
(FTA)
2,615
2,524
1,028
2,766
2,408
Transit Infrastructure Grants
252
0
116
346
46**
207
0
116
66
0**
8
8
8
8
0**
2,205
2,366
755
2,262
2,205
Grants to Washington Metropolitan
Area Transit Authority
150
150
150
150
150
Great Lakes Saint Lawrence
Seaway Development Corporation
(GLSLSDC)
40
41
41
41
40
Operations and Maintenance
40
41
41
41
40
Maritime Administration (MARAD)
982
860
919
1,143
900
Maritime Security Program
318
318
318
318
318
Cable Security Fleet
10
0
10
10
10
Tanker Security Program
60
60
120
120
60
Operations and Training
268
285
262
285
268
State Maritime Academy
Operations
126
87
118
178
126
Assistance to Small Shipyards
9
20
9
20
9
Ship Disposal
6
6
6
6
6
Administrations and Accounts
Amtrak Grants
Community Project
Funding/Congressionally Directed
Spending (non-add)
Technical Assistance and Training
Capital Investment Grants
Congressional Research Service
FY2025
Enacted
7
FY2025 THUD Appropriations
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2024
Enacted
FY2025
Request
Maritime Guaranteed Loan Program
54
4
4
5
54
Port Infrastructure Development
Program
121
80
72
200
50**
71
0
22
0
0**
National Defense Reserve Fleet
12
—
—
—
0**
Pipeline and Hazardous Materials
Safety Administration (PHMSA)
324
354
338
354
324
Operational Expenses
32
33
32
33
32
Hazardous Material Safety
75
87
81
87
75
Pipeline Safety
218
235
224
235
218
Oil Spill Liability Fund
30
31
31
31
30
Pipeline Safety Fund
181
196
186
196
181
Liquefied Natural Gas Siting
Account
*
*
*
*
*
Underground Natural Gas
Storage Facility Safety Account
7
7
7
7
7
Office of Inspector General
117
122
122
119
117
Salaries and Expenses
117
122
122
119
117
27,162
25,672
25,395
28,689
25,435
-175
—
-70
—
0**
OST—RRIF Cohort 3 Modification
Cost (§108)
-9
—
—
—
0**
FAA—Unobligated Balances
-2
—
—
—
0**
FHWA—General Fund (§125)
-68
—
—
—
0**
FRA
-53
—
—
—
0**
FTA—Unobligated Balances (§165)
-1
—
—
—
0**
MARAD
-42
—
-70
—
0**
Maritime Security Program
-17
—
—
—
0**
Cable Security Fleet
—
—
-10
—
—
Tanker Security Program
-21
—
-60
—
0**
Ship Disposal
-4
—
—
—
0**
User Fees
-188
-204
-193
-204
-188
PHMSA
-188
-204
-193
-204
-188
-181
-196
-186
-196
-181
Underground Natural Gas
Storage Facility Safety Account
-7
-7
-7
-7
-7
Liquefied Natural Gas Siting
*
*
*
*
*
Administrations and Accounts
Community Project
Funding/Congressionally Directed
Spending (non-add)
Total Appropriations
Rescissions
Pipeline Safety Fund
Congressional Research Service
FY2025
Enacted
8
FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
Net Discretionary Budget
Authority
26,987
25,468
25,132
28,485
25,246
Limitations on Obligations
(Mandatory Funding)
79,378
80,945
81,539
81,595
81,539
FAA—Airport and Airways Trust
Fund
3,350
3,350
4,000
4,000
4,000**
FHWA—Highway Trust Funda
60,096
61,314
61,314
61,314
61,314**
927
965
909
965
909**
NHTSA—Highway Trust Fund
1,015
1,037
1,037
1,037
1,037**
FTA—Highway Trust Fund
13,990
14,279
14,279
14,279
14,279**
47
47
47
47
47
106,365
106,412
106,671
110,080
106,785
Administrations and Accounts
Federal Motor Carrier Safety
Administration (FMCSA)—Highway
Trust Fund
PHMSA—Emergency Preparedness
Fund (non-add)
Total Budgetary Resources
(Mandatory + Discretionary)c
FY2025
Enacted
Source: FY2024 Enacted, FY2025 Request, and FY2025 House Comm. figures are taken from the Comparative
Statement of New Budget Authority table, as published in H.Rept. 118-584, as well as congressional budget
justifications. FY2025 Senate Comm. figures are taken from the Comparative Statement of New Budget
Authority table, as published in S.Rept. 118-199. FY2025 enacted figures are taken from the funding table in Book
II of the Explanatory Statement published in the January 22, 2026 Congressional Record (pp. H1888-H1909).
Notes: An "*" indicates amount rounds to less than $1 million; and "—" indicates amount is not available or not
applicable. A “**” denotes that the continuing resolution contained an anomaly that specified an alternative
funding level for the account. Agency subaccounts are italicized to differentiate from agency accounts. Consistent
with source materials, line items labeled as “non-add” are not included in account-level summary totals. Not
shown in this table, Division B of P.L. 118-158 (the law that contained in Division A the second FY2025
continuing resolution) provided $8 billion for FHWA’s Emergency Relief Program, which funds the repair or
replacement of disaster-damaged highway infrastructure such as the Francis Scott Key Bridge in Maryland.
a. For FHWA, there is an additional $739 million of mandatory budget authority that is exempt from the
limitation on obligations.
b. FY2025 value varies from FY2024 due to fee revenue estimation, rather than an anomaly.
c. Advance appropriations from Division J of P.L. 117-58 are not included in these totals, but are presented in
Table 4.
Selected FY2025 DOT Appropriations Topics
National Infrastructure Investments (Mega/RAISE Grants)
The Office of the Secretary’s (OST’s) National Infrastructure Investments account supports the
National Infrastructure Project Assistance discretionary grant program (49 U.S.C. §6701), also
known as Mega. Mega grants support large-scale projects and are authorized by Section 21201 of
P.L. 117-58. The National Infrastructure Investments account also supports the Local and
Regional Project Assistance discretionary grants program (49 U.S.C. §6702), also known as
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FY2025 THUD Appropriations
Better Utilizing Investments to Leverage Development (BUILD).2 BUILD grants support
multimodal projects for state, local, and tribal governments and are authorized by Section 21202
of P.L. 117-58. For FY2025, the National Infrastructure Investments account received $345
million for BUILD grants, matching FY2024 enacted levels of funding. The Senate committee
bill proposed $550 million in new appropriations, which is 65% more than the $334 million
enacted in FY2024. The account received $2.5 billion in supplemental advance appropriations in
FY2025 from P.L. 117-58, which includes $1 billion for Mega and $1.5 billion for RAISE.3
Federal Railroad Administration
The Federal Railroad Administration’s (FRA’s) Federal-State Partnership for Inner City Passenger
Rail account supports state of good repair and service improvement efforts of the Northeast
Corridor (NEC).4 The account also supports other national efforts to improve intercity passenger
rail corridors and provide new corridor services. For FY2025, the account was provided $75
million which matches FY2024 enacted levels. The Senate committee bill matched the
President’s request of $100 million for the account. The House committee bill included no new
funding for FY2025. The account received $7.2 billion in supplemental advance appropriations
from P.L. 117-58 for FY2025.
The FRA’s account for the National Railroad Passenger Corporation, also known as Amtrak,
supports grants for the Northeast Corridor and for the National Network. For FY2025, the
account was provided $2.4 billion, which matches FY2024 enacted levels. The House committee
bill included $2.1 billion and the Senate committee bill included $2.6 billion for the Amtrak
account. The House committee bill would have provided 15% less than the President requested
and 24% less than the Senate committee bill proposed for the account for FY2025. The Senate
committee bill included $1.6 billion for the National Network grant program while the House
committee bill included 31% less funding for FY2025 ($1.1 billion). The Amtrak account is also
to receive $4.4 billion in supplemental appropriations from P.L. 117-58, which would provide
$1.2 billion to support the Northeast Corridor grants and $3.2 billion to support National Network
grants.
Federal Transit Administration
The Federal Transit Administration’s (FTA’s) Transit Infrastructure Grants account supports
grants for ferry boat service, research and development, buses, bus facilities, earmarks, and more.
For FY2025, the Transit Infrastructure Grants account received $46 million, which is an 82%
decrease in funding compared to FY2025 ($252 million). The Senate committee bill included
$346 million in new appropriations, 200% more than the House committee bill ($116 million). Of
the Senate committee’s amount, 19% would have been for earmarks as identified in the Senate
Appropriations Committee report. The House committee bill proposed funding level for the
account was entirely composed of community project funding.
The FTA’s account for Capital Investment Grants supports state, local, and private investment in
capital projects for new and expanded transit service. For FY2025, the account was provided $2.2
billion, which matches FY2024 enacted levels. The President’s request of $2.4 billion and the
Senate committee proposed funding level ($2.3 billion) were similar to the FY2024 enacted
amount of $2.2 billion. The House committee recommended $755 million in discretionary
2 For more information on the BUILD program, see CRS Report R48863, Local and Regional Project Assistance
Program: Background and Selected Considerations, by Jennifer J. Marshall.
3 Division J, Title VIII.
4 49 U.S.C. §24911.
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FY2025 THUD Appropriations
funding, 68% below the request. The account received $1.6 billion in supplemental
appropriations in FY2025 from P.L. 117-58. The House Appropriations Committee report
recommended adjusting supplemental appropriations provided via P.L. 117-58 to ensure that the
FY2025 enacted amounts, unallocated amounts from the Consolidated Appropriations Act, 2024
(P.L. 118-42), and the supplemental appropriations do not exceed $2.864 billion.5
Maritime Administration
The Maritime Administration (MARAD) supports programs for U.S. shipyards, ports, waterways,
ships and shipping, vessel operations, ship disposal, and maritime education. For FY2025, the
account was provided 8.4% below (-$82 million) FY2024 enacted levels ($982 million). There
was no funding to the National Defense Reserve Fleet account as was provided in FY2024 ($12
million). For 2025, the Port Infrastructure Development Program account received 58% less (-$70
million) than FY2024 enacted levels ($120 million). The Senate committee bill included a total of
$1.143 billion for MARAD for FY2025, 24% more than included in the House committee bill
($919 million). The percentage differences in the proposed funding levels of the House
committee and the Senate committee were highest in the State Maritime Academy Operations
account and the Assistance to Small Shipyards account.
The State Maritime Academy Operations account supports six academies that train mariners. The
Senate committee bill included $178 million, 51% more than the House committee bill ($118
million) and 105% more than the President’s request ($87 million) for this account for FY2025.
For MARAD’s Assistance to Small Shipyards account, the House committee bill proposal
matched the FY2024 enacted amount of $9 million and the Senate committee bill matched the
FY2025 President’s request of $20 million. MARAD’s Tanker Security Program account supports
10 U.S. flag product tankers to support deployed Armed Forces. The House and the Senate
committees’ bills included $120 million for the Tanker Security Program, which would have
doubled the FY2024 enacted amount and the FY2025 President’s request ($60 million).
Earmarks
For 2025, under the terms of the year-long CR, there was no funding provided for Community
Project Funding/Congressionally Directed Spending projects (CPF/CDS, also referred to as
“earmarks”). The House committee bill proposed $1.5 billion in new CPF/CDS appropriations
while the Senate committee bill proposed $942 million (Table 3). Under FHWA’s Highway
Infrastructure Programs account, the FY2025 combined earmarks included by the appropriations
committees (House: $1.1 billion; Senate: $568 million) total 88% of the FY2024 enacted amount
($1.9 billion). Neither committee earmarked funding under the FAA’s Facilities and Equipment
account for FY2025, compared with $15 million in FY2024. For FTA, the House committee
proposed $116 million for earmarks, while the Senate committee proposed $66 million. For
MARAD, the House committee requested $22 million for earmarks through the Port
Infrastructure Development Program account, which is less than one-third of the earmarked
funding enacted in FY2024 ($70 million), while the Senate committee included no earmarks in
this account. Under OST’s Transportation Planning, Research, and Development account, the
Senate committee included nearly four times as much earmarked funding ($11 million) as was
enacted in FY2024 ($3 million).
5 U.S. Congress, House Appropriations Committee, Departments of Transportation, and Housing and Urban
Development, and Related Agencies Appropriations Bill, 2025, Report of the Committee on Appropriations, House of
Representatives, 118th Cong., 2nd sess., July 12, 2024, p. 56.
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In some accounts, earmarks would have nearly met or exceed prior-year appropriation levels if
funding from both chambers were incorporated. Under the Airport Discretionary Grants account,
the combined earmark recommendations of the two committees (House: $258 million; Senate:
$221 million) nearly equals the FY2024 enacted level ($482 million). For FRA’s Consolidated
Rail Infrastructure and Safety Improvements (CRISI) account, the two committees together
included 16% more funding for earmarks in FY2025 ($115 million) than was enacted in FY2024
($99 million).
Table 3. Department of Transportation, FY2024-FY2025 Community Project
Funding/Congressionally Directed Spending
(dollars in millions)
Administrations
Accounts
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Enacted
OST
Transportation
Planning, Research,
and Development
3
—
—
11
0
FAA
Facilities and
Equipment
15
—
—
—
0
Airport
Discretionary Grants
482
—
258
221
0
1,884
—
1,085
568
0
FHWA
Highway
Infrastructure
Programs
FRA
Consolidated Rail
Infrastructure and
Safety Improvements
99
—
39
76
0
FTA
Transit Infrastructure
Grants
207
—
116
66
0
MARAD
Port Infrastructure
Development
Program
70
—
22
—
0
2,761
—
1,520
942
0
Total
Sources: FY2024 Enacted, FY2025 Request, and FY2025 House Comm. figures are taken from the Comparative
Statement of New Budget Authority table, as published in H.Rept. 118-584, as well as congressional budget
justifications. FY2025 Senate Comm. figures are taken from the Comparative Statement of New Budget
Authority table, as published in S.Rept. 118-199. Earmark funding levels are proposed in H.R. 9028 and S. 4796.
Project descriptions can be found in H.Rept. 118-584 and S.Rept. 118-199. FY2025 enacted figures are taken
from the funding table in Book II of the Explanatory Statement published in January 22, 2026 Congressional Record
(pp. H1888-H1909).
Sources of FY2024 Enacted Budget Authority
Annually, DOT typically receives funding through three types of budget authority (Table 4).
Mandatory budget authority was 55.4% ($79.4 billion) of DOT’s budget authority for FY2024.
P.L. 117-58 provided supplemental advance appropriations to DOT for FY2022-FY2026. In
FY2024, advance appropriations from P.L. 117-58 accounted for 25.7% of DOT’s total budget
authority. For FY2024, Congress provided DOT with $27 billion in discretionary budget
authority, accounting for 18.8% of DOT’s total funding. In FY2025, advance appropriations from
P.L. 117-58 accounted for 25.6% of DOT’s total budget authority, discretionary appropriations of
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FY2025 THUD Appropriations
$25.3 billion accounted for 17.6% of DOT’s total budget and mandatory budget authority
accounted for 56.8%.
OST, FRA, and PHMSA received the majority of its FY2024 funding via advance appropriations
enacted in P.L. 117-58. FAA and MARAD received the majority of funding as discretionary
budget authority. FTA and the FHWA received the most funding through mandatory budget
authority in FY2024.
While Table 4 illustrates the sources of FY2024 funding, note that the same amount and
distribution of funding from P.L. 117-58 is slated to be available in FY2025.
Table 4. Department of Transportation Budget Authority by Source, FY2024
(dollars in millions)
P.L. 117-58
Emergency
Supplemental
Funding
Annual
Discretionary
Funding
Mandatory
Funding
Total
Funding
OST
3,800
1,058
—
4,858
FAA
5,000
16,732
3,350
25,082
FHWA
9,454
2,156
60,096
71,706
FMCSA
135
—
927
1,062
NHTSA
322
223
1,015
1,560
FRA
13,200
2,970
—
16,170
FTA
4,250
2,614
13,990
20,854
GLSLSDC
—
40
—
40
MARAD
450
941
—
1,391
PHMSA
200
136
—
336
OIG
—
116
—
116
36,811
26,987
79,378
143,176
Administrations
Total Appropriations by Type
Sources: P.L. 117-58 Emergency Supplemental Funding totals are taken from S.Rept. 118-70 accompanying S.
2437, “Other Appropriations,” pp. 224-227. Annual Discretionary Funding and Mandatory Funding figures are
taken from the Comparative Statement of New Budget Authority tables published in the Explanatory Statement
accompanying H.R. 4366 as passed the House and Senate, as well as the text of the Explanatory Statement and
bill, all available in the March 5, 2024, Congressional Record for Division F.
Department of Housing and Urban Development
Overview
HUD is the nation’s housing agency. The programs and activities it administers are designed
primarily to address housing problems faced by households with very low incomes or other
special housing needs, and to expand access to homeownership.6 The largest share of HUD’s
budget is devoted to its rental assistance programs: Section 8 Housing Choice Vouchers; projectbased rental assistance via Section 8, Section 202, and Section 811; and public housing. These
6 For more information about federal housing assistance programs, see CRS Report RL34591, Overview of Federal
Housing Assistance Programs and Policy, by Maggie McCarty, Libby Perl, and Katie Jones.
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FY2025 THUD Appropriations
programs, which serve over 4.6 million households, provide subsidies to allow low-income
recipients to pay below-market, income-based rent.
Two flexible block grant programs—the HOME Investment Partnerships grant program and the
Community Development Block Grant (CDBG) program—help states and local governments
finance a variety of housing and community development activities designed to serve low-income
families. Indian tribes receive their own direct housing and community development grants
through the Native American Housing Block Grant and Indian Community Development Block
Grant programs.
Other more specialized grant programs help communities meet the needs of homeless persons
(through the Homeless Assistance Grants, namely the Continuum of Care and Emergency
Solutions Grants programs), including those living with HIV/AIDS (through the Housing
Opportunities for Persons with AIDS program). Additional programs fund fair housing
enforcement activities and lead-based paint hazard identification and remediation, along with
other healthy homes initiatives.
HUD’s Federal Housing Administration (FHA) insures mortgages made by lenders to
homebuyers with low down payments and to developers of multifamily rental buildings
containing relatively affordable units. FHA collects fees from borrowers with FHA-insured
mortgages, which are used to sustain its insurance funds. The Government National Mortgage
Association (GNMA), or Ginnie Mae, is also a part of HUD and it guarantees securities made up
of federally insured or guaranteed mortgages.
Table 5 provides detailed appropriations information for HUD accounts and selected
subaccounts, comparing FY2024 enacted to FY2025.
Components of HUD Funding
Nearly all of HUD’s funding is provided via discretionary appropriations, generally contained in the annual THUD
appropriations act. (HUD programs may also receive additional resources from supplemental or other funding
measures in some years, most often in response to disasters.) The annual THUD bill provides budget authority via
appropriations for HUD programs and activities for a given fiscal year. The cost of that budget authority, as
determined by the Congressional Budget Office’s (CBO’s) scorekeeping process, is generally reduced by offsetting
receipts from the FHA’s loan programs and GNMA’s securitization of federally insured or guaranteed mortgages.
To a lesser extent, other collections and rescissions of prior-year appropriations can also offset the cost of the
HUD budget. Deducting the savings from offsets and rescissions from the gross budget authority provided to HUD
results in net budget authority. Generally, gross budget authority is the most useful measure of the new resources
being provided for HUD’s programs and activities, whereas net budget authority is used for budget enforcement
purposes and measuring against 302(b) allocations. Any funding designated as an emergency requirement provided
in the regular annual appropriations acts or in supplemental spending bills is generally exempt for purposes of
budget enforcement.
HUD also generally receives a relatively small amount of mandatory funding outside of the annual appropriations
process, such as contributions from the Government Sponsored Enterprises (Fannie Mae and Freddie Mac) to
fund the Housing Trust Fund. These mandatory funds are generally not reflected in this report.
Table 5. Department of Housing and Urban Development,
FY2024-FY2025 Detailed Appropriations
(dollars in millions)
Accounts
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Final
Appropriations
Congressional Research Service
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FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Final
Salaries and Expenses (Management and
Administration)
1,803
1,909
1,803
1,902a
1,803
Tenant-Based Rental Assistance (Section 8
Housing Choice Vouchers)
26,387
27,467
32,272
27,230
30,041**
Tenant-Based Rental Assistance—Emergency
Designated (non-add)
6,000
5,289
0
8,030
6,000
Total Tenant-Based Rental Assistance (incl. emergency
funding) (non-add)
32,387
32,756
28,500
35,260
36,041
Voucher Renewals (incl. emergency, non-add)
28,491
28,550
28,500
32,035
32,145
Administrative Fees (non-add)
2,771
2,964
2,771
2,880
2,771
VASH (non-add)
15
0
0
15
15
FUP (non-add)
30
0
0
30
30
Other Incremental Vouchers (non-add)
—
241
0
0
0
8,811
8,540
8,214
8,783
8,811
Operating Grants (non-add)
5,476
5,050
5,097
5,366
5,476
Capital Grants (non-add)
3,200
3,200
3,047
3,200
3,200
Operational Performance Evaluation and Risk
Assessments
50
50
50
50
50
Choice Neighborhoods
75
140
0
100
75
Self Sufficiency Programs
196
175
175
201
196
Native American Programs
1,344
1,053
1,455
1,455
1,344
Native American Block Grants (Formula) (nonadd)
1,111
820
1,222
1,217
1,111
Native American Block Grants (Competitive)
(non-add)
150
150
150
150
150
Indian Community Development Block Grants
(non-add)
75
75
75
80
75
Indian Housing Loan Guarantee
2
2
2
2
2
Native Hawaiian Block Grant
22
22
0
22
22
Housing, Persons with AIDS (HOPWA)
505
505
505
524
505
Community Development Fund
6,720
2,930
5,506
4,617
3,430**
CDBG Formula Grants
3,300
2,800
3,300
3,300
3,300
SUPPORT for Patients and Communities
30
30
30
30
30
Grants to Reduce Barriers to Affordable Housing
100
100
0
100
100
3,290
0
2,176
1,187
0**
1,250
1,250
500
1,425
1,250
Preservation and Reinvestment Initiative for
Community Enhancement
10
0
10
10
10
Self-Help Homeownership
60
55
56
70
60
Accounts
Public Housing Fund
Economic Development Initiatives
HOME Investment Partnerships
Congressional Research Service
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FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Final
Self-Help and Assisted Homeownership
Opportunity Program
12
9
9
13
12
Section 4 Capacity Building
42
41
42
47
42
Rural Capacity Building
6
5
5
10
6
Homeless Assistance Grants
4,051
4,060
4,060
4,319
4,051
Project-Based Rental Assistance (Section 8)
14,010
11,604
16,595
13,654
14,890**
Project-Based Rental Assistance—Emergency
Designated (non-add)
2,000
5,082
0
3,000
2,000
Total Project-Based Rental Assistance (incl. emergency)
16,010
16,686
16,595
16,654
16,890
15,542
16,189
16,127
16,127
16,422
Contract Administrators
468
492
468
492
468
Mark to Market
—
5
0
10
0
Loan Program for Distressed Properties
—
—
—
25
0
Housing for the Elderly (Section 202)
913
931
931
1,046
931**
Housing for Persons with Disabilities (Section 811)
208
257
257
257
257**
Housing Counseling Assistance
58
58
58
58
58
Manufactured Housing Fees Trust Fundb
14
14
14
14
14
Federal Housing Administration (FHA) Expensesb
150
155
150
155
150
Government National Mortgage Association
(GNMA) Expensesb
55
67
55
68
55
Research and Technology
139
156
119
150
139
Fair Housing Activities
86
86
85
86
86
Fair Housing Assistance Program (non-add)
26
26
26
26
NS
Fair Housing Initiatives Program (non-add)
56
56
55
56
NS
Lead Hazard Reduction
296
350
335
345
296
Information Technology Fund
383
419
385
436
383
Inspector General
153
160
160
160
153
Gross Appropriations Subtotal (non-emergency)
67,749
62,414
73,751
67,139
69,061
Gross Appropriations Subtotal (incl. emergency)
75,749
72,785
73,751
78,169
77,061
-14
-14
-14
-14
-14
FHA
-4,038
-6,794
-6,794
-6,794
-6,794
GNMA
-1,436
-1,563
-1,563
-1,563
-1,563
-5,488
-8,371
-8,371
-8,371
-8,371
-192
-156
-554
0
0**
-192
-156
-554
0
0
Accounts
Contract Renewals (incl. emergency)
Offsetting Collections and Receipts
Manufactured Housing Fees Trust Fund
Offsets Subtotal
Rescissions
Rescissions from Unobligated Balances
Recissions Subtotal
Congressional Research Service
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FY2025 THUD Appropriations
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
FY2025
Senate
Comm.
FY2025
Final
62,069
53,887
64,827
58,768
60,690
—
c
0
0
12,039d
Emergency Appropriations for Regular Program
Operations
8,000
10,371
0
11,030
8,000
Total (incl. all Emergency Spending)
70,069
64,258
64,827
69,798
68,690
Accounts
Net Discretionary Budget Authority
(non-emergency)
Disaster Relief Emergency Funding
Sources: FY2024 Enacted, FY2025 Request, and FY2025 House Comm. figures are taken from the Comparative
Statement of New Budget Authority table, as published in H.Rept. 118-584, as well as congressional budget
justifications. FY2025 Senate Comm. figures are taken from the Comparative Statement of New Budget
Authority table, as published in S.Rept. 118-199. FY2025 enacted figures are taken from the funding table in Book
II of the Explanatory Statement published in the January 22, 2026 Congressional Record (pp. H1888-H1909).
Notes: Figures may not add due to rounding. Some numbers have been adjusted for comparability. A ‘**’
denotes that the continuing resolution contained an anomaly that specified an alternative funding level for the
account.
a. The Senate committee bill includes funding for the Working Capital Fund in the Management and
Administration total. Those funds are not included in this total and are shown separately in this table,
consistent with the House committee and President’s budget presentations.
b. Some or all of the cost of funding these accounts is offset by the collection of fees or other receipts. Those
offsets are shown later in this table.
c. On June 28, 2024, the President submitted a supplemental request to Congress including $700 million for
Community Development Block Grant Disaster Recovery (CDBG-DR) assistance for communities affected
by disasters in 2023.
d. Division B of P.L. 118-158 (the law that contained in Division A the second FY2025 continuing resolution)
provided $12 billion in emergency funding for the HUD Community Development Fund for assistance in
response to natural disasters that occurred in 2023 or 2024.
Selected FY2025 HUD Appropriations Topics
Emergency-Designated Funding for Rental Assistance Renewals
Among the largest expenses in HUD’s budget are the annual costs of renewing rental assistance
payments for the 3.5 million families who are served by the Section 8 Housing Choice Voucher
and project-based rental assistance programs. The renewal costs of these two programs—funded
by the Tenant-Based Rental Assistance (TBRA) and Project-Based Rental Assistance (PBRA)
accounts, respectively—account for nearly 60% of the total new funding for HUD’s programs and
activities each year.7
As illustrated in Figure 2, the FY2023 and FY2024 appropriations laws funded rental assistance
renewal costs for these two programs using a combination of regular appropriations and
emergency-designated funding. Nearly 9% of renewal funding in the TBRA and PBRA accounts
in FY2023 and 18% in FY2024 was provided as emergency-designated spending, and therefore
not subject to the applicable discretionary spending limits, including the THUD subcommittee’s
302(b) allocations.
For FY2025, the President’s budget proposed again using emergency-designated funding for
rental assistance renewal costs, requesting that 23% of total TBRA and PBRA renewal funding
7 In FY2024, funding for TBRA and PBRA renewals accounted for 58% of HUD’s gross appropriations.
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come from emergency-designated funds. The House committee bill proposed no emergencydesignated funding for renewal costs. The Senate committee bill proposed more overall renewal
funding than requested by the President, and that the same share be emergency-designated as
requested by the President (23%). The full-year CR for FY2025 retained the same amount of
FY2024 emergency-designated funding, but because overall funding increased, the emergencydesignated share decreased from 18% in FY2024 to 16% in FY2025.
Figure 2. Rental Assistance Renewal Funding
Sources: FY2023 Enacted figures are taken from the Comparative Statement of New Budget Authority table, as
published in H.Rept. 118-154, beginning on page 410. FY2024 Enacted, FY2025 President’s Budget, and FY2025
House Committee figures are taken from the Comparative Statement of New Budget Authority table, as
published in H.Rept. 118-584, as well as congressional budget justifications. FY2025 Senate Committee figures
are taken from the Comparative Statement of New Budget Authority table, as published in S.Rept. 118-199.
FY2025 enacted figures are taken from the funding table in Book II of the Explanatory Statement published in
January 22, 2026 Congressional Record (pp. H1888-H1909).
House-Proposed Cut to the HOME Investment Partnerships Program
The House committee bill proposed $500 million in new appropriations for the HOME
Investment Partnerships account in FY2025, representing a 60% cut relative to FY2024
appropriations ($1.25 billion), which is among the largest proposed cuts to any HUD account this
fiscal year.8 The House committee report noted that the American Rescue Plan Act (P.L. 117-2)
provided $5 billion to HOME in 2021 for eligible rental housing activities in response to the
COVID-19 pandemic (HOME-ARP), only 5% of which had been expended.9
The HOME Investment Partnerships Program (HOME) provides formula funding to states, local
governments, and insular areas. Funds can be used for new construction, rehabilitation, and
acquisition of affordable housing for low-income renters, homebuyers, and homeowners, as well
as tenant-based rental assistance.
The President’s budget request for FY2025 designated that up to $50 million of the FY2025
HOME funds be set aside specifically for homebuyer assistance under a proposed FirstHOME
Downpayment Assistance Initiative (FirstHOME). While homebuyer assistance is an eligible use
of HOME funds, and Congress funded a homebuyer assistance set-aside from FY2003 to FY2008
through the American Dream Downpayment Initiative (ADDI), HUD appropriations have not
8 The House-proposed cut to Economic Development Initiatives ($1.1 billion) was larger in dollar terms.
9 H.Rept. 118-584, p. 87.
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previously funded FirstHOME, which was originally proposed in the President’s FY2022 budget.
Neither the House bill nor the Senate bill included FirstHOME set-asides for FY2025. However,
H.Rept. 118-543 requested that HUD encourage participating jurisdictions to prioritize
homeownership activities with their regular HOME grants, as those activities are not an eligible
use of HOME-ARP funds.10
The full year CR continued the FY2024 funding level for HOME in FY2025.
General Provisions
Each year, the THUD appropriations act includes dozens of General Provisions (GPs) for HUD,
which involve administrative guidance on how funding provided in the act should and should not
be used and, in some cases, amendments to laws that govern the department’s programs and
activities. Many of these GPs are carried over from year to year, but some new GPs are generally
added each year. Some of the new GPs under consideration for the FY2025 appropriations cycle
are discussed below.
Contract Administrators
HUD has been unsuccessfully attempting to rebid the performance-based contract administrator
(PBCA) contracts it uses to help manage the PBRA program for more than a decade. In the
FY2025 budget request, as in previous requests, the Administration sought a provision that would
have authorized the department to use cooperative agreements in lieu of procurement contracts
when making performance-based contract administrator awards for the PBRA program. The
Senate Committee bill (§234) contained a provision similar to that requested by the President’s
budget. The House Committee bill (§239) proposed to amend an existing statute to establish a
new competitive process for awarding PBCA contracts every seven years.
The full-year CR did not contain any of the language proposed by the President’s budget, the
House committee bill or the Senate committee bill.
Notice to Vacate
In response to the COVID-19 pandemic, the Coronavirus Aid, Relief, and Economic Security
(CARES) Act (P.L. 116-136) contained a temporary moratorium on the filing of evictions, as well
as other protections for tenants in certain rental properties with federal assistance or federally
related financing. One of those provisions, Section 4024(c), requires landlords of covered
properties to provide tenants at least 30 days’ notice before they must vacate a property following
an eviction. That provision was not covered by the same sunset date as the other tenant-related
provisions of the act, thus the 30-day notice to vacate requirement is still in effect. A number of
housing industry groups—including the National Apartment Association (NAA) and the National
Multifamily Housing Council (NMHC)11—have advocated for the repeal of the provision, and
repeal legislation (H.R. 802) was ordered reported by the House Financial Services committee in
118th Congress. These repeal efforts have been opposed by low-income housing and tenant
10 HOME-ARP funds have restrictions and eligible uses that are not equivalent to traditional HOME funds. HOME-
ARP funds can be used for rental housing acquisition, rehabilitation, and construction; TBRA; supportive services; and
acquisition and development of non-congregate shelter. 70% of HOME-ARP rental units must be occupied by
qualifying populations who are homeless or at risk of homelessness, and 100% of HOME-ARP funds used for TBRA,
supportive services, and shelter units must benefit such qualifying populations. See HUD Notice CPD-21-10 at
https://www.hud.gov/sites/dfiles/OCHCO/documents/2021-10cpdn.pdf.
11 NAA, “NAA, NMHC Applaud Bill to Restore Routine Housing Operations, Remove Federal Intrusion,” press
release, https://www.naahq.org/naa-nmhc-applaud-bill-restore-routine-housing-operations-remove-federal-intrusion.
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advocates such as the Low-Income Housing Coalition.12 The House committee bill contained a
repeal in its GPs (§243); the Senate committee bill contained no such provision and no such
provision was included in the full-year CR.
Native American Housing
The House committee bill and the Senate committee bill each included multiple GPs related to
Native American housing programs or tribes’ participation in housing programs. Some of these
provisions were included in both bills. None of the provisions described below were included in
the full-year CR.
The House and the Senate committee bills both included a provision (§236 in the House bill,
§242 in the Senate bill) to amend the Section 184 Indian Home Loan Guarantee Program, which
guarantees home loans made to eligible tribal members, to expand the geographic area where it
can be used. The President’s budget included a similar proposal.13 The provision in the Senate
committee bill would also have amended the Section 184A Native Hawaiian Home Loan
Guarantee program, which guarantees home loans for Native Hawaiians, to expand the
geographic areas where it can be used beyond the Hawaiian Home Lands; the provision in the
House committee bill did not address the Section 184A program. Both the House and the Senate
committee bills also included a GP (§237 in the House bill, §244 in the Senate bill) that would
have amended the Indian Community Development Block Grant (ICDBG) program to allow
tribes to carry out certain types of activities directly, rather than only through certain types of
nonprofits or other eligible organizations.
The House committee bill included a GP related to how certain housing units that are being used
in the Tribal HUD Veteran Affairs Supportive Housing (HUD-VASH) program are treated for the
purposes of the Native American Housing Block Grant (NAHBG) allocation formula. Part of the
NAHBG formula involves the number of housing units that received HUD assistance prior to the
NAHBG’s establishment that the tribe continues to own or operate, known as formula current
assisted stock. Currently, HUD requires that any such units that are leased using a Tribal HUDVASH voucher must be removed from the NAHBG formula calculation; they can be added back
when they are no longer being used in Tribal HUD-VASH.14 The House committee bill (§235)
proposed that formula current assisted stock units that are utilizing Tribal HUD-VASH vouchers
continue to be included in the NAHBG formula for the purposes of the FY2025 funding. The
Senate committee bill did not include such a provision.
The Senate committee bill included GPs to address certain aspects of tribes’ use of funds under
HUD’s Continuum of Care program (§241) and would have amended the Section 184 and Section
184A programs to allow loan terms of up to 40 years in the case of a loan modification (§243).
These provisions were not included in the House committee bill. The President’s budget included
12 National Low-Income Housing Coalition, “House Financial Services Committee Republicans Pass Bill to Eliminate
“CARES Act” 30-Day Eviction Notice Requirement,” April 22, 2024, https://nlihc.org/resource/house-financialservices-committee-republicans-pass-bill-eliminate-cares-act-30-day.
13 HUD FY2025 Budget Justifications, p. 14-3, https://www.hud.gov/sites/dfiles/CFO/documents/2025_CJ_Program__Indian_Housing_Loan_Guarantee_Fund.pdf.
14 HUD Office of Native American Programs Program Guidance 2018-01, https://www.hud.gov/sites/dfiles/PIH/
documents/2018-01ihbgtribalguidance.PDF.
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legislative proposals for additional flexibilities for tribes in the Continuum of Care program15 and
for 40-year loan modification terms in the Section 18416 and Section 184A17 programs.
Energy Efficiency Standards
Section 109 of the Cranston-Gonzalez National Affordable Housing Act, as amended most
recently by the Energy Independence and Security Act of 2007, addresses minimum energy
efficiency standards for newly constructed housing that is assisted or financed through certain
HUD or U.S. Department of Agriculture (USDA) programs.18 The standards are based on the
International Energy Conservation Code (IECC) for single-family homes and low-rise
multifamily buildings, and on the American Society of Heating, Refrigerating, and AirConditioning Engineers (ASHRAE) Standard 90.1 for high-rise multifamily buildings. The law
includes procedures for HUD and USDA to apply periodic revisions to the IECC Code and
ASHRAE 90.1 standard to new construction under the covered housing programs, subject to
certain determinations. In April 2024, HUD and USDA published a notice in the Federal Register
adopting more recent IECC and ASHRAE 90.1 editions—the 2021 IECC and ASHRAE 90.12019—for newly constructed housing under covered housing programs.19 The compliance date
varies by program. The House committee bill contained a GP (§242) that would have prohibited
HUD from using any funds made available in the act to update minimum energy efficiency
standards for new housing funded by the department as part of carrying out the April 2024
Federal Register notice or otherwise. The Senate committee bill contained no such provision and
no such provision was included in the full-year CR.
THUD Related Agencies
The annual THUD appropriations bill generally provides funding for seven independent agencies
that undertake activities related to transportation and/or housing:
•
•
•
The U.S. Access Board is an independent federal agency designed to coordinate
other federal agencies to promote accessible design and the development of
accessibility guidelines and standards to ensure access to federally funded public
infrastructure for persons with disabilities.20
The Federal Maritime Commission is an independent federal agency charged
with regulating U.S. ocean commerce.21
The Amtrak Inspector General is an independent organization charged with
providing oversight of Amtrak’s programs and operations.22
15 HUD FY2025 Budget Justifications, p. 22-9, https://www.hud.gov/sites/dfiles/CFO/documents/2025_CJ_Program_-
_HAG.pdf.
16 Ibid., p. 14-3.
17 Ibid., p. 16-3.
18 42 U.S.C. §12709
19 HUD and USDA, “Final Determination: Adoption of Energy Efficiency Standards for New Construction of HUDand USDA-Financed Housing,” 89 Federal Register 33112-33182, April 26, 2024, https://www.federalregister.gov/
documents/2024/04/26/2024-08793/final-determination-adoption-of-energy-efficiency-standards-for-new-constructionof-hud—and.
20 See https://www.access-board.gov/about/.
21 See https://www.fmc.gov/about-the-fmc/.
22 See https://amtrakoig.gov/about-us.
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•
The National Transportation Safety Board (NTSB) investigates accidents,
crashes, and other events in transportation.23
The Neighborhood Reinvestment Corporation (NeighborWorks America) is a
congressionally chartered nonprofit that supports a network of community
organizations that provide affordable housing, financial counseling, and resident
engagement.24
The Surface Transportation Board is an independent federal agency that is “the
economic regulation of various modes of surface transportation, primarily freight
rail.”25
The Interagency Council on Homelessness is an independent federal agency
charged with coordinating the federal response to homelessness.26
•
•
•
Table 6. THUD Related Agencies, FY2024-FY2025 Detailed Appropriations
(dollars in millions)
FY2024
Enacted
FY2025
Request
FY2025
House
Comm.
Access Board
10
10
10
10
10
Federal Maritime Commission
40
48
43
45
40
National Railroad Passenger
Corporation (Amtrak) Office of
Inspector General
29
32
32
32
29
National Transportation Safety Board
140
150
145
145
145**
Neighborhood Reinvestment
Corporation (NeighborWorks)
158
168
158
168
158
Surface Transportation Board
47
51
51
51
47
Offsetting Collections
-1
-1
-1
-1
-1
U.S. Interagency Council on
Homelessness
4
4
4
4
4
428
462
442
454
433
Related Agency
Total
FY2025
Senate
Comm.
FY2025
Enacted
Sources: FY2024 Enacted, FY2025 Request, and FY2025 House Comm. figures are taken from the Comparative
Statement of New Budget Authority table, as published in H.Rept. 118-584, as well as congressional budget
justifications. FY2025 Senate Comm. figures are taken from the Comparative Statement of New Budget
Authority table, as published in S.Rept. 118-199. FY2025 enacted figures are taken from the funding table in Book
II of the Explanatory Statement published in January 22, 2026 Congressional Record (pp. H1888-H1909).
Note: Totals may not add due to rounding. A ‘**’ denotes that the continuing resolution contained an anomaly
that specified an alternative funding level for the account.
23 See https://www.ntsb.gov/about/Pages/default.aspx.
24 See https://www.neighborworks.org/About-Us.
25 See https://www.stb.gov/about-stb/.
26 See https://www.usich.gov/about-usich/.
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Appendix. Overview of the FY2025 Budget Process
The consideration of the FY2025 THUD appropriations proposals takes place in the context of
the broader annual federal budget process, which begins with the release of the President’s
budget, generally followed by the adoption of a congressional budget resolution setting overall
spending limits, and development and consideration of the 12 annual appropriations acts
(including THUD).
The President’s budget request for the upcoming fiscal year is due to be submitted to Congress by
the first Monday in February, although it is not uncommon for the submission to happen after this
date. The President’s budget request for FY2025 was submitted on March 11, 2024, about five
weeks after it was due. Its release occurred in the same month as enactment of FY2024 full-year
annual appropriations (P.L. 118-42 and P.L. 118-47), which was about six months into the fiscal
year. The relationship between enactment of final FY2024 appropriations and the budget
submission means that funding amounts in the President’s FY2025 budget materials generally do
not reflect final FY2024 enacted funding levels and instead present estimates based on the
continuing resolutions in place at the time the budget documents were prepared.
For FY2025, the discretionary spending levels in appropriations measures were enforceable by
both statutory and procedural means. Statutory budget enforcement is through the discretionary
spending limits in the Balanced Budget and Emergency Deficit Control Act of 1985 (BBEDCA;
P.L. 99-177), as amended. These statutory limits are enforced through sequestration, which is a
largely across-the-board reduction made to the category of spending that is in excess of the limit
(defense or nondefense) to eliminate the excess spending.27 The statutory limits on discretionary
spending that were in effect for the FY2025 funding cycle were enacted as part of the FRA on
June 3, 2023.28 The FRA amended the BBEDCA to provide limits on defense discretionary (all
spending under budget function 050) and nondefense discretionary (all other spending) for
FY2024 and FY2025.29 Nearly all of the funding in the THUD bill is subject to the nondefense
limit.30
Procedural budget enforcement is primarily associated with the budget resolution, which provides
a process for the House and Senate to agree on budgetary targets ahead of consideration of
spending and revenue legislation. These targets are enforced through points of order. The budget
resolution is used each year to impose a limit on total discretionary spending available to the
appropriations committees (commonly referred to as a 302(a) allocation) and, subsequently,
limits on spending under the jurisdiction of each appropriations subcommittee (referred to as
302(b) suballocations).31
The House Budget Committee ordered reported a FY2025 budget resolution (H.Con.Res. 117;
H.Rept. 118-568), although it was not considered by the full House; no Senate action was taken
27 The FRA also contains procedures by which these limits might be temporarily or permanently adjusted in the case of
a continuing resolution. For a summary of these adjustments, see CRS Insight IN12168, Discretionary Spending Caps
in the Fiscal Responsibility Act of 2023.
28 Ibid.
29 For further information, see CRS Insight IN12183, The FRA’s Discretionary Spending Caps Under a CR: FAQs, by
Drew C. Aherne and Megan S. Lynch.
30 A relatively small amount of DOT funding is considered subject to the defense spending cap ($362 million in
FY2024).
31 For further information, see CRS Report 98-815, Budget Resolution Enforcement.
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prior to enactment of final FY2025 appropriations.32 For the purposes of providing 302(a)
allocations and budgetary aggregates for the consideration of FY2025 appropriations, as well as
other matters that would have traditionally been associated with the budget resolution, the FRA
allows the chair of the Senate Budget Committee to enter those amounts into the Congressional
Record not later than May 15;33 these were published May 14.34
Generally, the next step in the appropriations process is for each of the appropriations committees
to adopt suballocations from the total amount available from the 302(a) allocation. These 302(b)
suballocations provide a limit on current-year (i.e., FY2025) appropriations within each
subcommittee’s jurisdiction and incorporate any applicable scorekeeping adjustments made by
CBO.35 On May 23, the House Appropriations Committee voted to approve draft (interim)
suballocations for all 12 bills, including THUD,36 based on the overall spending limit included in
the FRA. The interim suballocations have since been revised.37 (These draft suballocations, and
subsequent revised suballocations, have not been reported to the House.) The Senate
Appropriations Committee reported to the Senate a full set of 302(b) suballocations on July 11;38
they were revised several times subsequently.39
Table A-1 shows the suballocation to the THUD subcommittees, compared to the applicable
FY2023 and FY2024 enacted levels and the President’s FY2025 budget request and final FY2025
enacted funding level.
Table A-1. FY2025 THUD 302(b) Suballocations, in Context
(dollars in billions)
FY2023
Enacted
FY2024
Enacted
FY2025
Request
House
FY2025
Draft 302(b)
Senate
FY2025
302(b)
FY2025
Enacted
87.332
89.484
79.818
90.400
114.495
86.370
THUD Regular
Discretionary Net
Budget Authority
Sources: The FY2023 Enacted amount comes from the FY2023 enacted total found in the current services
budget authority table, located in the explanatory statement accompanying the Consolidated Appropriations Act,
32 Following enactment of full-year FY2025 appropriations, both the House and the Senate took action on an FY2025
budget resolution (H.Con.Res. 14 and S.Con.Res. 7, respectively). This action, however, primarily involved the
development of reconciliation legislation, and the topline level for FY2025 reflected actions already taken by Congress.
For more information, see CRS Insight IN12353, Discretionary Spending: Setting a Topline Amount for FY2025
Appropriations.
33 For more information, see CRS Insight IN12353, Discretionary Spending: Setting a Topline Amount for FY2025
Appropriations.
34 “Budget Enforcement Levels,” Congressional Record, daily edition, vol. 170, no. 83 (May 14, 2024), pp. S3679S3670
35 Such suballocations are commonly revised throughout the appropriations process to reflect changing budgetary
priorities.
36 House Appropriations Committee, “Committee Approves FY25 Subcommittee Allocations, Prioritizing Defense,
Homeland Security, and Veterans Affairs,” press release, May 23, 2024, https://appropriations.house.gov/news/pressreleases/committee-approves-fy25-subcommittee-allocations-prioritizing-defense-homeland.
37 The House Appropriations Committee draft suballocations were revised on July 10, 2024, as published at
https://appropriations.house.gov/events/markups/full-committee-markup-fiscal-year-2025-labor-health-and-humanservices-and-education.
38 S.Rept. 118-190.
39 S.Rept. 118-197; S.Rept. 118-203; S.Rept. 119-3.
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2024, as shown in H. Comm. 55-007, p. 1577. The FY2024 Enacted and FY2025 Request amounts come from the
respective columns in the current services budget authority table located in H.Rept. 118-543, page 376. House
FY2025 Draft 302(b) amounts are taken from https://appropriations.house.gov/events/markups/full-committeemarkup-fiscal-year-2025-labor-health-and-human-services-and-education. Senate FY2025 302(b) amounts are
taken from S.Rept. 119-3 . FY2025 enacted figures are taken from the funding table in Book II of the Explanatory
Statement published in the January 22, 2026 Congressional Record (pp. H1888-H1909), revised to reflect
scorekeeping adjustments.
Notes: Amounts reflect current-year discretionary budget authority subject to spending limits. Emergency
appropriations and mandatory funding, which do not count against discretionary spending limits, are excluded.
Author Information
Maggie McCarty, Coordinator
Specialist in Housing Policy
Jennifer J. Marshall
Analyst in Transportation Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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Congressional Research Service
R48253 · VERSION 5 · UPDATED
25
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