Appropriations for FY2000: Labor, Health and Human Services, and Education

Congressional research reportDec 17, 1999

Ask Donna

What actually matters in this document.

Text

Order Code RL30203

CRS Report for Congress

Received through the CRS Web

Appropriations for FY2000: Labor, Health and

Human Services, and Education

Updated December 17, 1999

Paul M. Irwin

Specialist in Social Legislation

Domestic Social Policy 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 Labor, Health and Human Services, and Education. It

summarizes the current legislative status of the bill, its scope, major issues, funding levels,

and related legislative activity. The report lists the key CRS staff relevant to the issues

covered and related CRS products.

This report is updated as soon as possible after major legislative developments, especially

following legislative action in the committees and on the floor of the House and Senate.

NOTE: A Web version of this document with

active links is available to congressional staff at

[http://www.loc.gov/crs/products/apppage.html]

Appropriations for FY2000: Labor, Health and Human

Services, and Education

Summary

This report describes the enactment of the Departments of Labor, Health and

Human Services, and Education, and Related Agencies (L-HHS-ED) Appropriations

Act, 2000. This Act provides nearly all discretionary funds for three federal

departments and related agencies. The report summarizes L-HHS-ED discretionary

funding issues; it does not directly track authorization or entitlement issues.

On February 1, 1999, the President submitted the Administration’s FY2000

budget to the Congress. Following a series of seven continuing resolutions and the

veto of H.R. 3064, the President signed H.R. 3194 into law, P.L. 106-113, on

November 29, 1999. Discretionary appropriations may be described as “program

level” for funding from the current Act for any year, and “budget authority” (BA) for

funding for the current year from any Act. The L-HHS-ED program level was $90.0

billion in FY1999; $93.6 billion was requested by the President; and $96.9 billion was

enacted. Comparable BA amounts are $83.3 billion, $91.6 billion, and $86.1 billion,

respectively. FY1999 funding was enacted primarily through P.L. 105-277.

U.S. Department of Labor (DOL): Discretionary DOL program level funding

was $10.9 billion in FY1999, and $11.2 billion as enacted. The comparable BA

amounts were $10.9 billion and $8.8 billion, respectively. Funding for the Workforce

Investment Act (WIA) was increased by $248 million for FY2000, including $195

million more for WIA’s Dislocated Worker Assistance.

U.S. Department of Health and Human Services (DHHS): Discretionary

DHHS program level was $36.4 billion in FY1999, and $41.3 billion as enacted;

respective BA amounts were $36.2 billion and $39.9 billion. FY2000 funding for the

National Institutes of Health (NIH) was increased by $2.2 billion; increases of $100

million or more were provided for Ryan White AIDS programs, Centers for Disease

Control and Prevention (CDC), Substance Abuse and Mental Health Services

Administration (SAMHSA), Head Start, and the Public Health and Social Service

Emergency Fund. Funding for the Health Care Financing Administration (HCFA)

Program Management was reduced by $134 million.

U.S. Department of Education (ED): Discretionary ED program level was

$33.3 billion in FY1999, and $35.7 billion as enacted; respective BA amounts were

$28.8 billion and $29.5 billion. FY2000 increases of $100 million or more were

provided for 21st Century Community Learning Centers, Title I Grants to Local

Educational Agencies, Class Size Reduction, Special Education State Grants, and

Fund for the Improvement of Education (FIE).

Related Agencies: Discretionary program level funding for related agencies was

$7.8 billion in FY1999 and $8.2 billion as enacted; respective BA amounts are $7.8

billion and $8.1 billion. Funding for the Social Security Administration (SSA)

Limitation on Administrative Expenses was increased by $115 million in FY2000.

Key Policy Staff

CRS

Division Telephone

Area of Expertise

Name

Coordinator

Paul M. Irwin

DSP

7-7573

Ann Lordeman

William G. Whittaker

Linda Levine

Edward B. Rappaport

Carol O’Shaughnessy

James R. Storey

Richard N. Apling

James R. Storey

Celinda Franco

Christine Devere

Gene Falk

DSP

7-2323

7-7759

7-7756

7-7740

7-7329

7-7308

7-7352

7-7308

7-7360

7-2587

7-7344

ALD

DSP

7-6190

7-5006

7-7077

7-7048

7-4618

7-7319

7-2163

7-7367

7-4618

7-2260

DSP

7-7342

7-7048

7-4618

7-7367

7-1377

7-7359

7-7077

7-7048

7-7077

7-7329

7-4618

7-8913

7-2261

7-7304

U.S. Department of Labor

Job training and employment services

Labor standards enforcement

Labor market information

Mine Safety and Health Administration

Occupational Safety and Health Administration

Older Americans Act, employment programs

Pension and Welfare Benefits Administration

Pension Benefit Guaranty Corporation

School-to-Work Opportunities Act

Trade Adjustment Assistance

Unemployment compensation

Welfare-to-Work

U.S. Department of Health and Human Services

Abortion, legal issues

AIDS, Ryan White programs

Cancer research

Centers for Disease Control and Prevention

Child care

Child welfare

Family Planning

Head Start

Health professions education and training

Immigration and refugee policy

Immunization

Low-Income Home Energy Assistance Program

Maternal and Child Health Block Grant

Medicaid

Medicare

Needle exchange

NIH, health research policy

Older Americans Act

Social Services Block Grant

State Children’s Hospital Insurance Program

Substance Abuse and Mental Health Services

Tobacco settlement

Welfare reform

Karen J. Lewis

Kenneth R. Thomas

Judith A. Johnson

Pamela W. Smith

Melinda Gish

Karen Spar

Ruby Andrew

Sharon Kearney

Melinda Gish

Bernice

Reyes-Akinbileje

Ruth Wasem

Pamela W. Smith

Melinda Gish

Sharon Kearney

Elicia Herz

Jennifer O’Sullivan

Judith A. Johnson

Pamela W. Smith

Judith A. Johnson

Carol O’Shaughnessy

Melinda Gish

Evelyne Baumrucker

C. Stephen Redhead

Vee Burke

CRS

Division Telephone

Area of Expertise

Name

Welfare reform

Gene Falk

DSP

7-7344

Paul M. Irwin

Patricia Osorio-O’Dea

Wayne C. Riddle

Paul M. Irwin

Wayne C. Riddle

James B. Stedman

Patricia Osorio-O’Dea

Richard N. Apling

James B. Stedman

Margot A. Schenet

Carol O’Shaughnessy

Edith Fairman Cooper

Richard N. Apling

Nancy Lee Jones

Margot A. Schenet

James B. Stedman

Gail McCallion

DSP

ALD

DSP

7-7573

7-2393

7-7382

7-7573

7-7382

7-7356

7-2393

7-7352

7-7356

7-7378

7-7329

7-7019

7-7352

7-6976

7-7378

7-7356

7-7758

DSP

G&F

DSP

ALD

DSP

7-2323

7-7781

7-7382

7-7758

7-7461

7-7322

7-7316

7-4271

U.S. Department of Education

Adult education and literacy

Bilingual education

ED-FLEX

Education block grants

Education of the Disadvantaged, Title I

Education technology

Impact Aid

National education goals, Goals 2000

Pell Grants

Rehabilitation Act

Safe and Drug-Free Schools and Communities

School-to-Work Opportunities Act

Special education, IDEA

Student aid, student loans

Teacher recruitment, preparation, and training

TRIO, GEAR UP

21st Century Community Learning Centers

Related Agencies

Corporation for National and Community Service Ann Lordeman

Corporation for Public Broadcasting

Bernevia McCalip

Library services

Wayne C. Riddle

National Labor Relations Board

Gail McCallion

National Labor Relations Board

Kimberly D. Jones

Social Security Administration

David S. Koitz

Social Security Administration

Geoffrey Kollmann

Supplemental Security Income

Rachel Kelly

Division abbreviations: ALD = American Law; DSP = Domestic Social Policy; G&F = Government

and Finance.

Contents

Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Perspective and Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

302(b) Allocation Ceilings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Aggregate Funding Levels . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Summary of Funding Changes Proposed by the President . . . . . . . . . . 7

House Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Senate Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Public Law Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

For Additional Reading, Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Other CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

U.S. Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

U.S. Department of Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . 21

Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

Abortion: A Perennial L-HHS-ED Issue . . . . . . . . . . . . . . . . . . . . . 24

Tobacco Revenues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

U.S. Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

Forward Funding and Advance Appropriations . . . . . . . . . . . . . . . . . 32

For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40

Related Legislative Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Appendix A: Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Appendix B: Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

List of Tables

Table 1. Legislative Status of Labor, Health and Human Services,

and Education Appropriations, FY2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Table 2. 302(b) Allocations for L-HHS-ED Programs . . . . . . . . . . . . . . . . . . . . 4

Table 3. Summary of L-HHS-ED Appropriations . . . . . . . . . . . . . . . . . . . . . . . 5

Table 4. L-HHS-ED Discretionary Funding Trends From FY1995 . . . . . . . . . 12

Table 5. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . 15

Table 6. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . . . 19

Table 7. U.S. Department of Health and Human Services

Discretionary Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Table 8. Detailed Department of Health and Human Services

Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Table 9. Department of Education Discretionary Appropriations . . . . . . . . . . . 29

Table 10. Detailed Department of Education Appropriations . . . . . . . . . . . . . . 35

Table 11. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . 37

Table 12. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . . 41

Table B.1. Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

List of Figures

Figure 1. Federal and L-HHS-ED Discretionary Appropriations, FY1999 . . . . . 7

Figure 2. L-HHS-ED Discretionary Appropriations by Department, FY1999 . . 7

Appropriations for FY2000: Labor, Health and

Human Services, and Education

Most Recent Developments

The provisions of H.R. 3424, the Labor, Health and Human Services, and

Education, and Related Agencies (L-HHS-ED) Appropriations Act, 2000, were

enacted into law by cross reference in §1000(a)(4) of H.R. 3194, informally known

as the Consolidated Appropriations Act, 2000, which was signed into law by the

President November 29, 1999, as P.L. 106-113. The Act includes a general

reduction in FY2000 discretionary budget authority of 0.38%, to be applied to each

department or agency; no program, project, or activity may be reduced by more than

15% of what would otherwise be provided through any Act for FY2000.

Prior to the enactment of P.L. 106-113, a series of seven continuing resolutions

provided interim FY2000 funding from October 1, 1999, through November 29,

1999. On November 3, 1999, the President vetoed H.R. 3064, which would have

provided FY2000 appropriations for both L-HHS-ED programs and the District of

Columbia. In earlier action, the House Appropriations Committee reported H.R.

3037, the FY2000 bill for L-HHS-ED appropriations on October 7; also on that day,

the Senate passed its version of the bill, S. 1650. The President submitted the

Administration’s FY2000 budget request to the Congress on February 1, 1999.

Status

Table 1 tracks the key legislative steps that are necessary to enact appropriations

for the Departments of Labor, Health and Human Services, and Education, and

Related Agencies (L-HHS-ED) for FY2000.

CRS-2

Table 1. Legislative Status of Labor, Health and Human Services,

and Education Appropriations, FY2000

Subcommittee

Markup

House Senate

House

House Senate Senate Conference

Report Passage Report Passage

Report

Conference Report

Approval

House

Senate

Public Law

—

Original House Bill, H.R. 3037

9/23/99

—

10/7/99

H.Rept.

106-370

—a

—

Original Senate bill, S. 1650

—

—b

—

9/29/99 10/7/99,

S.Rept. 73 y 106-166 25 n a, c

—

L-HHS-ED bill included in District of Columbia bill, H.R. 3064

—

10/27/99

H.Rept.

106-419 d

10/28/99

218 y 211 e

11/02/99

49 y 48 f

Vetoed

11/03/99 g

L-HHS-ED bill included in Consolidated Appropriations bill, H.R. 3424/H.R. 3194

—

11/18/99

H.Rept.

106-479 d

11/18/99

296 y 135 e

11/19/99

74 y 24 f

P.L. 106113

11/29/99 g

The FY2000 continuing resolution, P.L. 106-62, §101(a)(8), declares that, for purposes of the

continuing resolution, the House or Senate reported version of the L-HHS-ED bill shall be deemed

to have passed the House or Senate respectively as of October 1, 1999, unless a reported version has

been passed by that date.

The Senate Appropriations Subcommittee for Labor, Health and Human Services, and Education

met to discuss a draft proposal on FY2000 L-HHS-ED appropriations on September 27, 1999.

S. 1650: For Senate passage, see Congressional Record, Daily Edition, September 28, 1999, p.

S11584; September 29, p. S11585-11637; September 30, p. S11663-11666, S11681-11719, S1172111724; October 1, p. S11757-11761, S11774-11780; October 6, p. S12052-12062, S12069-12093;

October 7, p. S12147-12176, S12178-12185, S12188-12215. Roll Call #321(73-25), October 7,

1999, p. S12215.

H.R. 3064: For text of conference report H.Rept. 106-419, see Congressional Record, Daily

Edition, October 27, 1999, p. H10933-11065.

For House passage, see Congressional Record, Daily Edition, October 28, 1999, p. H11094-11121.

Roll Call #549 (218-211), October 28, 1999, p. H11120-11121.

For Senate passage, see Congressional Record, Daily Edition, October 29, 1999, p. S13503-12507,

S13520-13525; November 1, p. S13617; November 2, p. S13622-13623. Roll Call #343 (49-48),

November 2, p. S13622-13623.

For text of veto message, see House Document 106-154; Congressional Record, Daily Edition,

November 3, 1999, p. H11441-11443.

H.R. 3194/H.R. 3424: For the text of conference report for H.R. 3194, H.Rept. 106-479, see

Congressional Record, Daily Edition, November 17, 1999, Part II, p. H12230-12609. There is no

separate conference report for H.R. 3424. Instead, bill and report language for H.R. 3424 —

including a table showing the amounts agreed to for each program, project, and activity — are

included within H.Rept. 106-479, at p. H12384-12491.

For House passage, see Congressional Record, Daily Edition, November 18, 1999, p. H1275612820. Roll Call #610 (296-135), November 18, 1999, p. H12820.

Table notes are continued on next page.

CRS-3

Notes to Table 1 (continued):

For Senate passage, see Congressional Record, Daily Edition, November 19, 1999, p. S1498615059. Roll Call #374 (74-24), November 19, 1999, p. S15056-15059.

A continuing resolution, P.L. 106-62, as amended, provided temporary FY2000 funding for L-HHSED programs and activities for the interim period October 1 through November 29, 1999 (see

Related Legislation, p. 43).

P.L. 106-479, informally known as the Consolidated Appropriations Act, 2000

(H.R. 3194, signed November 29, 1999), provides appropriations for the District of

Columbia; in addition, it enacts four other appropriation bills by cross reference,

including H.R. 3424 for L-HHS-ED, as well as five non-appropriation bills. No

legislative action was taken on H.R. 3424 following its introduction and inclusion in

the H.R. 3194 conference report, H.Rept. 106-479, on November 17, 1999. In

particular, there was no separate conference report for H.R. 3424; the L-HHS-ED bill

language, report language, and table with the amounts for each program, project, and

activity, are included as a part of H.Rept. 106-479. The provisions of H.R. 3424, as

introduced, are enacted into law through §1000(a)(4) of P.L. 106-113 (H.R. 3194),

and the L-HHS-ED provisions must be published in the official “slip law” form and

in the United States Statutes at Large for P.L. 106-113, along with the other bills

enacted by cross reference.1

DATA NOTE: Unless otherwise noted in this report, FY2000 appropriations

data are based on H.R. 3424, as included in the H.R. 3194 conference report,

H.Rept. 106-479. The FY2000 amounts reflect H.R. 3037, as reported (House),

S. 1650, as passed (Senate), and H.R. 3424, as enacted (H.R. 3194 conference).

These data have not been adjusted for the general agency reduction of 0.38% in

FY2000 discretionary funds that is required by §301 of H.R. 3425, as enacted by

cross reference in §1000(a)(5) of P.L. 106-113. However, the FY1999 data have

been adjusted for changes made by P.L. 106-31, the 1999 Emergency Supplemental

Appropriations Act (see Related Legislative Activity, page 43). In most cases data

represent net funding amounts for specific programs and activities, taking into

account current and forward funding, advance appropriations, rescissions, and

supplementals; however, they are subject to additional budgetary scorekeeping and

other adjustments. Except where noted, budget data refer only to those programs

within the purview of the L-HHS-ED appropriations bill, and not to all programs

within the jurisdiction of the relevant departments and agencies.

Perspective and Summary

This report describes the President’s proposal for FY2000 appropriations for

L-HHS-ED programs that was submitted to the Congress February 1, 1999. The

report compares the President’s request to the FY1999 L-HHS-ED amounts. It

tracks legislative action and congressional issues related to the FY2000 L-HHS-ED

appropriations bill, with particular attention paid to discretionary programs. The

report summarizes activities related to the annual budget process, such as the

For details, see CRS Report RS20403, FY2000 Consolidated Appropriations Act:

Reference Guide, by Robert Keith.

CRS-4

congressional budget resolution, continuing resolutions, and supplemental

appropriations (beginning on page 43). However, the report does not follow specific

funding issues related to mandatory L-HHS-ED programs, nor the authorizing

legislation necessary prior to funding some of the President’s initiatives. For a

glossary of budget terms, please see Appendix A: Terminology (page 46). For a

discussion of the L-HHS-ED bill jurisdiction, please see Appendix B: Scope of the

L-HHS-ED Bill (page 47).

302(b) Allocation Ceilings

The annual congressional budget resolution for FY2000, H.Con.Res. 68 (see

Related Legislative Activity, page 43), sets the aggregate discretionary spending limit

for the annual appropriations total, known as the 302(a) allocation. From this

allocation the House and Senate appropriations committees allocate funds among

their subcommittees for each of the 13 appropriations bills, known as the 302(b)

allocations. The 302(b) allocations can and do get adjusted during the year as the

various appropriation bills progress toward final enactment. Current 302(b)

allocations for the FY2000 L-HHS-ED appropriations bill from the House and Senate

Appropriations Committees are shown in Table 2. The comparable 302(b) amounts

for FY1999 enacted and the FY2000 budget are the current year discretionary

amounts, $83.3 billion and $91.6 billion, respectively. As shown in the table, the

current House limit for FY2000 is $75.8 billion (a decrease of 9.0%), and the Senate

amount is $84.2 billion (a 1.1% increase). Discussion in the media concerning these

proposed amounts suggests that legislative difficulties over the depth of some of the

proposed allocation reductions, as well attempts to find methods to increase the

ceilings, may make the L-HHS-ED bill one of the last enacted for FY2000.

Table 2. 302(b) Allocations for L-HHS-ED Programs

(budget authority in billions of dollars)

FY1999

final

comparable

FY2000

request

comparable

FY2000

House

allocation

FY2000

Senate

allocation

FY2000

conference

comparable

$83.3

$91.6

$75.8

$84.2

$86.1

Source: For the FY2000 House allocation, the on-line document of October 12, 1999, at

[http://www.house.gov/appropriations/00302b1.htm]; for the FY2000 Senate allocation, the on-line

document of September 28, 1999, at [http://www.senate.gov/~appropriations/9-28allocations.htm].

The comparable amounts for the FY1999 final appropriation, the FY2000 budget request, and the

FY2000 conference amount are based on the H.R. 3194 conference report, H.Rept. 106-479.

Note: Under current scorekeeping provisions, advance appropriations that were enacted as part of

the FY1999 appropriation are counted in the FY2000 totals, and any advance appropriations that

might be enacted as part of the FY2000 appropriation would be counted in the FY2001 totals.

As used above, the FY1999 comparable amount of $83.3 billion is based on the

H.R. 3194 conference report. Because of scorekeeping and other differences in

definitions, several other numbers might be used as the FY1999 basis. The

Congressional Budget Office (CBO) shows the total FY1999 discretionary budget

authority (regular and emergency) for L-HHS-ED as an estimated $83.9 billion in its

CRS-5

“CBO’s Current Status of Discretionary Appropriations” (downloaded on

November 4, 1999, from [http://www.cbo.gov/]). For the equivalent FY1999

L-HHS-ED 302(b) allocations, CBO estimates the amounts as $83.8 billion for the

House and $82.7 billion for the Senate. The FY1999 L-HHS-ED appropriations

provided an increase (compared to FY1998 appropriations) of $4.9 billion in advance

appropriations. Typically, advance appropriations are not scored in the current fiscal

year, but sometimes this additional amount has been added to the regular FY1999

appropriations for L-HHS-ED programs, thereby increasing the FY1999 base by $4.9

billion.

Table 3 summarizes the L-HHS-ED appropriations for FY2000, including

mandatory and discretionary funds provided through the L-HHS-ED bill. Because

appropriations may consist of mixtures of budget authority enacted in various years,

two summary measures are used. Program level reflects only the appropriations in

the current bill, regardless of the year that they will be spent; it includes advances in

the current bill for future years (also shown separately in the table). Budget

authority represents (a) appropriations in the current bill for the current year, plus

(b) appropriations for the current year that were enacted in prior years and (c) various

scorekeeping adjustments (both shown separately in the table). Budget authority is

similar to the amount counted for the 302(b) allocations ceilings, as shown in Table 2.

Table 3 also shows current year funding for mandatory programs that are regularly

included in the L-HHS-ED bill, as well as the total for the current year; however, the

appropriations committees generally have effective control only over the discretionary

funds.

Table 3. Summary of L-HHS-ED Appropriations

($ in billions)

FY1999

final b

FY2000

request

FY2000

House c

FY2000

Senate

FY2000

conference

Program level (from the

current bill for any year)

$90.0

$93.6

$89.5

$98.0

$96.9

Budget authority (for current

year from any bill)

83.3

91.6

77.0

84.5

86.1

Advances for future years

(from the current bill)

8.8

10.8

20.3

21.0

19.0

Advances from prior years

(from previous bills)

4.0

8.8

Scorekeeping adjustments

-1.9

0.0

-1.0

-1.3

-0.6

Discretionary

83.3

91.6

77.0

84.5

86.1

Mandatory

209.3

227.1

226.6

228.3

229.1

Total current year

292.6

318.7

303.6

312.8

315.2

Type of funding a

Discretionary Appropriations

Current Year Funding

CRS-6

Type of funding a

FY1999

final b

FY2000

request

FY2000

House c

FY2000

Senate

FY2000

conference

318.3

328.6

328.2

Grand Total of Funding for Bill, Any Year

Grand total any year

301.2

323.0

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept. 106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference). FY1999 and FY2000 mandatory amounts are estimates that are subject to

adjustments after the close of the fiscal year.

Appropriations are defined in Appendix A: Terminology. Data are given only for programs

included in the L-HHS-ED appropriation bill.

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

In addition, the FY2000 House bill would have provided $508 million (not included in the table)

for agriculture disaster assistance for losses associated with Hurricane Floyd and other hurricanes

and associated flooding that occurred in the eastern U.S. during August and September 1999.

Key Issues

The L-HHS-ED bill typically is one of the more controversial of the 13 regular

appropriation bills, not only because of the size of its funding total and the scope of

its programs, but also because of the continuing importance of various related nonfunding issues, such as restrictions on the use of federal funds for abortion.

Aggregate Funding Levels. The L-HHS-ED bill provides most of the

discretionary funds for three federal departments and several related agencies

including the Social Security Administration (SSA). Of the 13 annual appropriation

bills, the L-HHS-ED bill is the largest single source of discretionary funds for all

domestic programs; the Defense bill is the largest source of discretionary funds for all

federal programs. For FY1999, the L-HHS-ED bill accounted for $84.7 billion

(14.7%) and the Defense bill accounted for $255.0 billion (44.3%) of the estimated

$575.0 billion total for all federal discretionary budget authority.2 Figure 1 shows the

L-HHS-ED share of all federal discretionary appropriations in FY1999.

In this comparison of the L-HHS-ED total with federal discretionary budget authority, the

FY1999 amounts are based on the Budget of the United States Government Fiscal Year

2000, Table S-9.

CRS-7

Figure 1. Federal and L-HHS-ED Discretionary Appropriations,

FY1999

Federal Total = $575.0 billion

Other Federal

40.9%

L-HHS-ED

14.7%

Defense

44.3%

Source: Budget of the United States Government Fiscal Year 2000, Table S-9.

Once the aggregate size of the L-HHS-ED discretionary appropriations is

determined under the 302(b) allocation, the distribution of these discretionary funds

among departments and programs within the bill becomes the next issue. Figure 2

shows the discretionary share for each department within the L-HHS-ED total for

FY1999. Appendix B (page 47) describes the combined discretionary and mandatory

funding for each department within the L-HHS-ED bill.

Figure 2. L-HHS-ED Discretionary Appropriations by Department,

FY1999

L-HHS-ED Total = $83.3 billion

DHHS

43.5%

DOL

13.1%

Agencies

9.4%

34.1%

Source: Percentage shares are based on the conference report H.Rept. 105-825, which provides

details for the FY1999 L-HHS-ED appropriations under P.L. 105-277.

Summary of Funding Changes Proposed by the President. With regard to

the President’s FY2000 budget, the issues in the early stages of the appropriations

process generally relate to proposed funding changes. The following summary notes

changes proposed for discretionary budget authority of at least $100 million,

CRS-8

compared to the FY1999 appropriations. Viewing this list by itself should be done

with caution, since the relative impact of a $100 million increase to a $500 million

program (a 20% increase) will most likely be significantly greater than a $100 million

increase to a $5 billion program (a 2% increase). The discussion of individual

departments provides detailed tables for comparing the FY2000 request with the

FY1999 funding for many of the major programs in the L-HHS-ED bill.

! For U.S. Department of Labor (DOL) programs, an additional $288 million is

requested for job training programs newly authorized by the Workforce

Investment Act of 1998 (WIA), and an increase of $242 million is proposed for

State Unemployment Insurance and Employment Service Operations

(SUI/ESO).

! For U.S. Department of Health and Human Services (DHHS) programs, the

largest discretionary increase (in absolute terms) is an additional $608 million

proposed for the Head Start program. Other proposed increases include an

additional $100 million for the Ryan White AIDS programs; an increase of

$320 million for the National Institutes of Health (NIH); a $239 million

increase for the Substance Abuse and Mental Health Services Administration

(SAMHSA); and $166 million more for the Administration on Aging. An

appropriation of $386 million is requested for the Public Health and Social

Service Emergency Fund (PHSSEF); $223 million is provided on an

emergency basis for FY1999.

! For U.S. Department of Education (ED) programs, the largest proposed

discretionary increase (in absolute terms) is $400 million in additional funds

proposed for 21st Century Community Learning Centers. Other major

increases include $103 million more for Educational Technology programs; an

additional $264 million for Title I Grants to Local Educational Agencies

(LEAs) for the Education of the Disadvantaged; $200 million more for the

Class Size Reduction program; $190 million more for Adult Education and

Family Literacy programs; an additional $120 million for Gaining Early

Awareness and Readiness for Undergraduate Programs (GEAR UP). A

decrease of $241 million is requested in new funding for the Pell Grant

program; however, surplus funds from prior years would be used to increase

program spending from $7.7 billion in FY1999 to $7.9 billion in FY2000. No

funds are requested for the $375 million Innovative Program Strategies

(education block grant) program. A decrease of $128 million is proposed for

the Impact Aid programs.

! For the related agencies, the budget includes proposed increases of $163

million for the Social Security Administration (SSA) Limitation on

Administrative Expenses, and $117 million for discretionary activities related

to the Supplemental Security Income (SSI) program.

House Legislative Action. The House Appropriations Committee marked up

its FY2000 L-HHS-ED bill on September 30, 1999, and reported H.R. 3037 on

October 7, 1999 (H.Rept. 106-370). Highlights of the bill as reported include the

following provisions; additional details are provided in the separate agency summaries

below.

CRS-9

! For DOL programs, WIA funds would be reduced overall (compared to

FY1999 funding levels), and the WIA Youth Opportunity Grants would be

terminated. The School-to-Work Opportunities program would be terminated.

Funding for SUI/ESO programs would be reduced.

! For DHHS programs, funding would be increased for the NIH, Health

Professions, the Maternal and Child Care Block Grant, Head Start, and the

PHSSEF. Funding for the Centers for Disease Control and Prevention (CDC),

SAMHSA, and Health Care Financing Administration (HCFA) Program

Management would be reduced. The Child Care and Development Block

Grant (CCDBG) would be terminated.

! For ED, funding for the 21st Century Community Learning Centers, Class Size

Reduction/Teacher Empowerment Initiative, and Special Education State

Grants would be increased. Funding for Education Technology would be

reduced. Funding would be terminated for Goals 2000: Educate America Act,

School-to-Work Opportunities Act, Professional Development, and GEAR

UP.

! For the related agencies, the House bill would maintain funding for most

discretionary activities at approximately the same level as in FY1999.

Senate Legislative Action. The Senate Appropriations Committee marked up

its FY2000 L-HHS-ED bill on September 28, 1999, and reported S. 1650 on

September 29, 1999 (S.Rept. 106-166). On October 7, 1999, the Senate amended

and passed S. 1650, by a vote of 73 to 25 (roll call #321). Highlights of the bill as

passed include the following provisions; additional details are provided in the separate

agency summaries below.

! For DOL, WIA would receive increased funding (compared to FY1999

funding levels), including an increase for the Dislocated Workers Assistance

program.

! For DHSS, funding would be increased for the NIH, Community Health

Centers, Ryan White AIDS programs, SAMHSA, CCDBG, Head Start, and

the PHSSEF. Funding would be reduced for HCFA Program Management.

! For ED, funding would be increased for 21st Century Community Learning

Centers, Title I Grants to Local Educational Agencies, Special Education State

Grants, and Adult Education. Funding would be reduced for the Fund for the

Improvement of Education (FIE).

! For the related agencies, funding would be increased for SSI Discretionary

Activities and the SSA Limitation on Administrative Expenses.

Vetoed Bill. The H.R. 3064 conference report, H.Rept. 106-419 — including

FY2000 appropriations for both the District of Columbia and L-HHS-ED — was

approved by the House October 28, 1999, by a vote of 218 to 211 (Roll Call #549),

and by the Senate November 2, 1999, by a vote of 49 to 48 (Roll Call #343). The

President vetoed H.R. 3064 on November 3, 1999 (H.Doc. 106-154). Declaring the

bill “deeply flawed” and “clearly unacceptable,” the President singled out the acrossthe-board reduction of 0.97% for all FY2000 discretionary funds, as well as “crippling

cuts” in the increases requested for key education, labor, and health priorities.

Highlights of the vetoed bill include the following provisions.

CRS-10

! For DOL, WIA programs would be increased (compared to FY1999 funding

levels), including the WIA Dislocated Workers Program.

! For DHHS, increases would be provided for NIH, Ryan White AIDS

programs, Head Start, and the PHSSEF. Funding would be reduced for HCFA

Program Management.

! For ED, funding would be increased for 21st Century Community Learning

Centers and Special Education State Grants.

! For the related agencies, funding for most programs would be approximately

the same as the FY1999 amounts.

Public Law Summary. H.R. 3424, was enacted by cross reference through

§1000(a)(4) of H.R. 3194. The H.R. 3194 conference report, H.Rept. 106-479 –

which includes the provisions of H.R. 3424 – was approved by the House November

18, 1999, by a vote of 296-135 (Roll Call #610), and by the Senate November 18,

1999, by a vote of 74 to 24 (Roll Call #374). The President signed H.R. 3194 into

law on November 29, 1999, as P.L. 106-113. The new law requires a 0.38%

reduction in FY2000 discretionary funds for each agency. Highlights of the enacted

bill include the following provisions; additional details are provided in the separate

agency summaries.

Funding Highlights. Several major L-HHS-ED programs receive funding

increases compared to FY1999 amounts; in some instances the funding is more than

requested by the President. Funding for a few programs is decreased. Total

discretionary funding in the FY2000 L-HHS-ED bill is $96.9 billion, $6.9 billion more

than the FY1999 amount and $3.3 billion more than requested by the President

(FY2000 discretionary appropriations are subject to a reduction of 0.38%).

! For DOL, WIA programs would be increased (compared to FY1999 funding

levels), including the WIA Dislocated Workers Program.

! For DHHS, increases would be provided for NIH, Ryan White AIDS

programs, the CDC, SAMHSA, Head Start, and the PHSSEF. Funding would

be reduced for HCFA Program Management.

! For ED, funding would be increased for 21st Century Community Learning

Centers, Title I Grants to Local Educational Agencies, Class Size

Reduction/Teacher Assistance Initiative, Special Education State Grants, and

the FIE.

! For the related agencies, funding would be increased for the SSA Limitation

on Administrative Expenses.

! H.R. 3064, which was vetoed November 3, 1999, would have provided $95.5

billion of discretionary appropriations for L-HHS-ED programs, $1.4 billion

below the amount of $96.9 billion provided by P.L. 106-113 (neither amount

reflects the FY2000 general reductions of 0.38% and 0.97%, respectively).

! Advance appropriations in the bill provide $19.0 billion in discretionary

budget authority for fiscal years beyond FY2000; the comparable amount for

FY1999 was $8.8 billion.

Modifications to Existing Programs and General Provisions. The FY2000

L-HHS-ED Appropriations Act modifies several programs or otherwise specifies

additional provisions concerning the use of funds provided under this Act.

CRS-11

! One of the last agreements to be reached prior to the enactment of the FY2000

L-HHS-ED Act relates to the Class Size Reduction/Teacher Assistance

program, first authorized under §307 of the FY1999 Act, P.L. 105-277. The

FY2000 L-HHS-ED Act specifies the same allocation formula as was used in

FY1999, but provides that local educational agencies (LEAs) may use 25%

(15% in FY1999) of their funds for professional development and testing of

new teachers, and allows additional flexibility for LEAs receiving smaller

grants or those participating in Ed-Flex programs. However, new standards

are imposed to ensure the hiring of fully qualified teachers. (§310 of P.L. 106113)

! The date on which the DHHS final regulation on Organ Procurement and

Transplantation Network can take effect is extended until 42 days after

enactment of this Act. (§210)

! The obligation of $5.0 billion of DHHS appropriations is delayed and restricted

to the period beginning September 29, 2000, and ending October 15, 2000;

programs affected include NIH, Health Resources and Services Administration

(HRSA), CDC, Children and Families Services Programs (CFSP), Social

Services Block Grant (SSBG), and SAMHSA. (§216)

! DHHS must conduct a study on certain geographic adjustment factors used for

payments for physicians’ services under the Medicare program, and to report

the results within 3 months of enactment. (§217)

! States receive increased flexibility in the enforcement of laws concerning the

minimum age of sale for tobacco products. (§218)

! Title III, “Systemic State and Local Education Systemic Improvement,” and

Title IV, “Parental Assistance,” of P.L. 103-227, Goals 2000: Educate

America Act are repealed as of September 30, 2000. (§310)

! Title I Grants to Local Educational Agencies are modified to extend

FY1999 minimum allocation provisions and to encourage public school choices

for pupils attending public schools in need of improvement. (Education for the

Disadvantaged account)

! Funding provisions are modified for a study of school violence by ED. (§312)

! Provisions for the voter registration of college students under the Higher

Education Act (§487(a)(23)(C)) are clarified regarding how they apply to

specific types of elections. (§314)

! The prohibition on using funds to make a final determination regarding unique

health identifiers for individuals prior to enactment of specific legislation

allowing such determination is continued. (§514)

! The restrictions on using funds for abortions that were made in P.L. 105277 are continued. (§508 and 509)

! The funding prohibitions on use of funds for sterile needle exchange

programs or human embryo research that were made in P.L. 105-277 are

continued. (§505 and 510, respectively)

Authorization of New Programs and Activities. The FY2000 L-HHS-ED

Appropriations Act authorizes or amends several programs and activities.

! Title VI of the FY2000 Act clarifies authority under the Public Health Service

Act to authorize statewide programs for the early detection, diagnosis, and

intervention for newborns and infants with hearing loss.

CRS-12

! Title VII authorizes the DHHS to make grants to the Denali Commission to

plan, construct, and equip multi-county demonstration projects for health,

nutrition, and child care services.

! Title VIII includes Welfare-to-Work amendments to extend the eligibility of

certain populations, and a provision to decrease the financial penalties for

states out of compliance with centralized collection and disbursement

requirements for the Child Support Enforcement program.

Major Funding Trends

The L-HHS-ED appropriations consist of mandatory and discretionary funds;

however, the Appropriations Committees fully control only the discretionary funds.

Mandatory funding levels for programs included in the annual appropriations bills are

modified through changes in the authorizing legislation; these changes typically are

accomplished through the authorizing committees and combined into large, omnibus

reconciliation bills. Table 4 shows the trend in total discretionary budget authority

under the L-HHS-ED appropriations for FY1995 through FY1999. The L-HHS-ED

funds have increased by 24.9% for this 5-year period. The 5-year increase is reduced

to an estimated 17.3% after adjustment for inflation by use of the Gross Domestic

Product (GDP) deflator. When compared to all federal discretionary budget

authority, the L-HHS-ED portion increased from 12.7% in FY1995 to 14.7% in

FY1999. When compared to all federal budget authority, both discretionary and

nondiscretionary (mandatory), the L-HHS-ED portion increased during this period

from 4.4% in FY1995 to 4.8% in FY1999.

Table 4. L-HHS-ED Discretionary Funding Trends From FY1995

(budget authority in billions of dollars)

Type of funds

FY1995

FY1996

FY1997

FY1998

FY1999

L-HHS-ED discretionary

$67.8

$67.2

$74.7

$81.1

$84.7

L-HHS-ED discretionary in

estimated FY1999 dollars

$72.2

$70.2

$76.6

$82.2

$84.7

L-HHS-ED % of all federal

discretionary funds a

12.7%

13.4%

13.9%

15.2%

14.7%

L-HHS-ED % of total federal

budget authority

4.4%

4.3%

4.5%

4.8%

Total federal discretionary

$533.8

$502.5

$536.3

$534.2

$575.0

Total federal budget authority $1,539.7 $1,580.8 $1,642.9 $1,692.3

$1,770.1

GDP deflator

1.0762

1.0976

1.1183

1.1317

1.1464

Source: Budget of the United States Government Historical Tables Fiscal Year 2000, tables 5.2 and

10.1 (for total federal budget authority and GDP deflator); and Budget of the United States

Government, various years (for discretionary budget authority).

Discretionary funds include both defense and non-defense activities.

CRS-13

For Additional Reading, Background

CRS Issue Briefs.

CRS Issue Brief IB10017, Budget for Fiscal Year 2000, by Philip D. Winters.

Other CRS Products.

CRS Info Pack 12B, Budget Process.

CRS Report 98-203, Appropriations for FY1999: Labor, Health and Human

Services, and Education, by Paul M. Irwin.

CRS Report RL30056, Appropriations Supplemental for FY1999: Emergency

Funding in P.L. 105-277 for Agriculture, Embassy Security, Y2K Problems,

Defense, and Other Issues, by Larry Nowels, Coordinator.

CRS Report RL30199, Budget FY2000: A Chronology with Internet Access, by

Susan E. Watkins.

CRS Report 97-684, The Congressional Appropriations Process: An Introduction,

by Sandy Streeter.

CRS Report RS20095, The Congressional Budget Process: A Brief Overview, by

James V. Saturno.

CRS Report RL30343, Continuing Appropriations Acts: Brief Overview of Recent

Practices, by Sandy Streeter.

CRS Report RS20403, FY2000 Consolidated Appropriations Act: Reference Guide,

by Robert Keith.

CRS Report RL30083, Supplemental Appropriations for FY1999: Central America

Disaster Aid, Middle East Peace, and Other Initiatives, by Larry Nowels,

Coordinator.

Selected World Wide Web Sites.

General information regarding the budget and appropriations may be found at

the following web sites. Web sites specific to departments and agencies funded by the

L-HHS-ED appropriations will be listed in the appropriate sections of this report.

House Committee on Appropriations

[http://www.house.gov/appropriations]

[http://www.house.gov/appropriations/fact.htm]

[http://www.house.gov/appropriations/news.htm]

[http://www.house.gov/appropriations/pr00lhcm.html]

Senate Committee on Appropriations

[http://www.senate.gov/~appropriations/enter.htm]

[http://www.senate.gov/~appropriations/releases.htm]

[http://www.senate.gov/~appropriations/leg.htm]

Congressional Research Service (CRS) FY2000 Appropriations Products

[http://www.loc.gov/crs/products/apppage.html]

Congressional Budget Office (CBO)

[http://www.cbo.gov]

CRS-14

General Accounting Office (GAO)

[http://www.gao.gov]

Office of Management & Budget (OMB)

[http://www.whitehouse.gov/OMB]

[http://www.access.gpo.gov/su_docs/budget/]

[http://www.whitehouse.gov/OMB/legislative/sap/Appropriations/]

[http://www.gpo.gov/usbudget/fy2000/amndsup.html]

CRS-15

U.S. Department of Labor

Discretionary appropriations for the U.S. Department of Labor (DOL) are shown

in Table 5, including the FY2000 budget proposal, the amounts in the House, Senate,

and conference bills, and the FY1999 enacted amount. Because appropriations may

consist of mixtures of budget authority enacted in various years, two summary

measures are used. Program level reflects only the appropriations in the current bill,

regardless of the year that they will be spent; it includes advances in the current bill

for future years (also shown separately in the table). Budget authority represents

(a) appropriations in the current bill for the current year, plus (b) appropriations for

the current year that were enacted in prior years (shown separately in the table, as

well). Budget authority is similar to the amount counted for the 302(b) allocations

ceilings. A discussion of advance appropriations as they relate to 302(b) allocations

may be found in the U.S. Department of Education section (see page 32).

Table 5. Department of Labor Discretionary Appropriations

($ in billions) a

FY1999

final b

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

Program level (from the

current bill for any year)

$10.9

$11.6

$10.1

$11.4

$11.2

Budget authority (for

current year from any bill)

10.9

11.6

7.5

8.7

8.8

Advances for future years

(from the current bill)

0.0

2.6

2.7

2.5

Advances from prior years

(from previous bills)

0.0 c

0.0

Type of funding

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept. 106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The amounts shown are for discretionary programs funded by the L-HHS-ED appropriation bill;

mandatory programs funded through the L-HHS-ED bill and other laws are not included.

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

The amount is less than $0.05 million.

Mandatory DOL programs included in the L-HHS-ED bill were funded at $1.9

billion in FY1999, and consist of the Black Lung Disability Trust Fund ($1.0 billion),

Advances to the Unemployment Insurance and Other Trust Funds ($0.4 billion),

Federal Unemployment Benefits and Allowances programs ($0.3 billion), and

Employment Standards Administration Special Benefits programs ($0.2 billion).

CRS-16

Key Issues

President’s Request. The President’s FY2000 discretionary budget request for

DOL is intended to support three broad strategic goals: (a) a prepared workforce, (b)

a secure workforce, and (c) quality workplaces. According to the Administration, a

prepared workforce increases employment opportunities by providing the education

and training for each worker to compete in a global economy. The goal of a secure

workforce means promoting the economic security of all workers and their families,

including pension coverage, retirement benefits, and health benefits. A quality

workplace means a safe and healthful workplace, with equal opportunity for every

worker, as well as protection for children in the workplace both here and abroad.

Discretionary increases of more than $100 million requested for DOL programs

under the President’s FY2000 budget include the following:

! An additional $288 million is requested for programs authorized by the

Workforce Investment Act of 1998 (WIA), including increases for Dislocated

Worker Assistance ($195 million) and Job Corps ($38 million), as well as other

federally administered programs under WIA.

! An increase of $242 million is proposed for State Unemployment Insurance

and Employment Service Operations (SUI/ESO), including State Operations

for Unemployment Compensation ($83 million), other Unemployment

Compensation activities ($81 million), and Work Incentive Grants ($50

million).

Smaller DOL increases are proposed for Employment Standards Administration

(ESA) salaries and expenses ($61 million), Occupational Safety and Health

Administration (OSHA) ($34 million), and Departmental Management ($66 million).

A reduction of $70 million is proposed for the DOL portion of the School-toWork Opportunities Act program, as part of an authorized phase-out by FY2001 of

federal financial support.

For the Welfare-to-Work Grants program, $137 million was rescinded by the

FY1999 L-HHS-ED appropriations from unallocated state formula grants; no

additional reductions are requested in the budget.

House Bill. At the Committee level, the House bill does not accept all of the

funding changes proposed in the President’s FY2000 budget.

! The House bill would provide $4.6 billion for programs authorized by WIA,

$847 million less than the request and $584 million less than the FY1999

amount. WIA Youth Training would be provided $100 million less than

requested, and WIA Dislocated Worker Assistance would be provided $336

million less than requested. WIA Youth Opportunity Grants would be

terminated; the request was for level funding at $250 million.

! The House bill would terminate funding for School-to-Work Opportunities; the

request is for $55 million, and $125 million was provided in FY1999.

! Various SUI/ESO activities would be funded at $3.1 billion, $364 million less

than the request, and $122 million below the FY1999 level.

CRS-17

Senate Bill. As passed, the Senate bill differs from the House proposal with

regard to several programs.

! The Senate bill would provide $5.4 billion for WIA programs, $839 million

more than the House, including $100 million more for Youth Training, $336

million more for Dislocated Worker Assistance, and $250 million more for

Youth Opportunity Grants; the Senate amount is $8 million less than the

request, and $255 million more than the FY1999 amount of $5.1 billion.

! The Senate bill would provide $55 million for School-to-Work Opportunities,

the same as the request; the House bill would terminate funding. This program

was provided $125 million in FY1999.

! The bill would provide $3.4 billion for various SUI/ESO activities; the amount

is $217 million more than the House provision, but $147 million less than the

request; these programs were funded at $3.3 billion in FY1999.

Conference Report. The conference bill provides funding amounts for DOL

programs similar to those in the President’s FY2000 budget request, with the

following exception.

! The bill would provide $3.3 billion for various SUI/ESO activities, $252

million less than the request; $3.3 billion was provided in FY1999.

For Additional Reading

CRS Issue Briefs.

CRS Issue Brief IB10048, The Davis-Bacon Act: Action During the 106th Congress,

by William G. Whittaker.

CRS Issue Brief IB10042, OSHA Reform: “Partnership” with Employers, by

Edward B. Rappaport.

CRS Issue Brief 98023, Trade Adjustment Assistance: Proposals for Renewal and

Reform, by James R. Storey.

CRS Reports.

CRS Report 97-536, Job Training Under the Workforce Investment Act: An

Overview, by Ann Lordeman.

CRS Report 95-917, Older Americans Act: Programs and Funding, by Carol

O’Shaughnessy and Celinda Franco.

CRS Report 97-541, School-to-Work Opportunities Act, by Richard N. Apling.

CRS Report 94-417, Unemployment Compensation: A Fact Sheet, by Celinda

Franco.

CRS Report RS20134, Welfare Reform: Reauthorization of the Welfare-to-Work

Grant Program, by Christine Devere.

CRS Report 98-62, Welfare Reform: The Welfare-to-Work Grant Program, by

Christine Devere and Gene Falk.

CRS-18

Selected World Wide Web Sites.

U.S. Department of Labor

[http://www.dol.gov]

[http://www.dol.gov/dol/_sec/public/budget/main.htm]

[http://www.dol.gov/dol/_sec/public/budget/990323ah.htm]

Detailed Appropriation Table

Table 6 shows the appropriation details for offices and major programs of DOL.

CRS-19

Table 6. Detailed Department of Labor Appropriations

($ in millions)

Office or major program

FY1999

final a

FY2000

request

Employment and Training Administration (ETA)

Training and Employment

Services (TES), Workforce

955

Investment Act (WIA) Adult

Training Grants to States

—WIA Youth Training

1,001

—WIA Dislocated Worker

1,401

1,596

Assistance

—WIA Job Corps

1,309

1,347

—WIA Youth Opportunity

250

Grants (YOG)

—WIA Other Federally

229

259

Administered Programs

—WIA (JTPA) subtotal b

5,145

5,408

—School-to-Work

125

Opportunities

—TES, Other

Welfare-to-Work Rescission

-137

Community Service

Employment for Older

440

Americans

Federal Unemployment

Benefits and Allowances,

361

314

Trade Adjustment and

NAFTA Activities

(mandatory)

State Unemployment

Insurance and Employment

Service Operations

2,123

2,206

(SUI/ESO) Unemployment

Compensation State

Operations

—SUI/ESO Unemployment

172

253

Compensation, Other

—SUI/ESO Employment

822

848

Service

—SUI/ESO One-Stop Career

147

149

Centers

—SUI/ESO Work Incentives

Grants

—SUI/ESO subtotal

3,264

3,506

Advances to Unemployment

Trust Fund and Other Funds

357

356

(mandatory)

ETA Program

145

141

Administration

ETA, subtotal

9,711

10,232

FY2000

House

FY2000

Senate

FY2000

conference

860

950

901

1,001

1,260

1,596

1,359

1,347

1,359

250

181

256

237

4,561

5,400

5,393

440

314

415

2,135

2,155

2,150

161

135

822

869

829

100

147

120

3,142

3,359

3,254

356

138

149

146

8,962

10,192

10,077

CRS-20

Office or major program

FY1999

final a

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

100

154

314

343

339

1,013

1,014

1,406

1,436

1,432

337

388

382

211

231

228

Pension and Welfare

102

Benefits Administration

Pension Benefit Guaranty

Corporation (PBGC)

Administration

PBGC Services (non-add)

149

154

Employment Standards Administration (ESA)

ESA Salaries and Expenses

315

376

ESA Special Benefits

179

(mandatory)

ESA Black Lung Disability

1,021

1,014

Trust Fund (mandatory)

ESA subtotal

1,515

1,469

Occupational Safety and

Health Administration

354

388

(OSHA)

Mine Safety and Health

216

228

Administration (MSHA)

Bureau of Labor Statistics

399

421

Departmental Management

432

498

TOTALS, DEPARTMENT OF LABOR

Total Appropriations c

12,727

13,352

395

421

409

485

413

478

11,834

13,252

13,120

Current Year: FY2000

FY2001

12,727

13,352

9,227

10,532

10,657

2,607

2,720

2,463

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept.106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

In most cases, the FY1999 amounts were appropriated under the Job Training Partnership Act

(JTPA); the FY2000 amounts are limited to WIA programs.

Appropriations totals include discretionary and mandatory funds, and may be subject to additional

scorekeeping and other adjustments.

CRS-21

U.S. Department of Health and Human Services

Discretionary appropriations for the U.S. Department of Health and Human

Services (DHHS) are shown in Table 7, including the FY2000 budget proposal, the

amounts in the House, Senate, and conference bills, and the FY1999 enacted amount.

Because appropriations may consist of mixtures of budget authority enacted in

various years, two summary measures are used. Program level reflects only the

appropriations in the current bill, regardless of the year that they will be spent; it

includes advances in the current bill for future years (also shown separately in the

table). Budget authority represents (a) appropriations in the current bill for the

current year, plus (b) appropriations for the current year that were enacted in prior

years (shown separately in the table, as well). Budget authority is similar to the

amount counted for the 302(b) allocations ceilings. A discussion of advance

appropriations as they relate to 302(b) allocations may be found in the U.S.

Department of Education section (see page 32).

Table 7. U.S. Department of Health and Human Services

Discretionary Appropriations

($ in billions) a

FY1999

final b

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

Program level (from the

current bill for any year)

$36.4

$39.2

$37.3

$41.9

$41.3

Budget authority (for

current year from any bill)

36.2

39.1

37.0

37.7

39.9

Advances for future years

(from the current bill)

2.3

2.4

2.6

6.5

3.7

Advances from prior years

(from previous bills)

2.1

2.3

Type of funding

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept. 106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The amounts shown are for discretionary programs funded by the L-HHS-ED appropriation bill;

mandatory programs funded through the L-HHS-ED bill and other laws are not included.

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

Mandatory DHHS programs included in the L-HHS-ED bill were funded at

$175.9 billion in FY1999, and consist primarily of Grants to States for Medicaid

($103.5 billion), Payments to Medicare Trust Funds ($62.8 billion), Social Services

Block Grant ($1.9 billion), and Foster Care and Adoption ($5.1 billion).

CRS-22

Key Issues

President’s Request. The President’s FY1999 discretionary budget request for

DHHS focuses on a number of programs related to the funding and delivery of health

care and social services. The DHHS budget emphasizes health research programs,

the President’s Child Care initiative,3 children’s health insurance, fraud and abuse

prevention, user fees, drug and alcohol treatment programs, human immunodeficiency virus/acquired immune deficiency syndrome (HIV/AIDS) prevention and

treatment programs, the President’s Race initiative as it relates to health disparities

among minority groups, and the tobacco settlement and related treatment and

prevention activities.

Discretionary increases of more than $100 million requested for DHHS programs

under the President’s FY2000 budget include the following:

! The largest discretionary increase is an additional $608 million proposed for

the Head Start program, an early childhood development program for children

and their families to assist low-income children start school ready to learn.

! An additional $100 million is proposed for the Ryan White AIDS programs.

! An increase of $320 million is requested for the National Institutes of Health

(NIH).

! A $239 million increase is requested for the Substance Abuse and Mental

Health Services Administration (SAMHSA), including $131 million more for

the Substance Abuse Block Grant.

! $166 million more is proposed for the Administration on Aging.

A decrease is proposed for Program Management under the Health Care

Financing Administration (HCFA) at DHHS of $127 million. Smaller reductions in

DHHS funding are requested for several discretionary programs, including Health

Professions ($50 million); other programs administered by Health Resources and

Services Administration (HRSA) (including $65 million for the Health Care and Other

Facilities program); Agency for Health Care Policy Research ($75 million); and

various smaller programs of the Children and Family Services Programs (CFSP) ($74

million). For the Public Health and Social Service Emergency Fund (PHSSEF), $386

million is requested on a non-emergency basis; $223 million was provided in FY1999

from emergency funding for a variety of activities including anti-bioterrorism, AIDS

prevention and treatment in minority communities, and Year 2000 computer

conversion efforts.

House Bill. At the Committee level, the House bill does not accept all of the

funding changes proposed in the President’s FY2000 budget.

! The House bill would provide $16.9 billion for NIH, an amount $1.0 billion

more than the President’s request, and $1.2 billion more than the FY1999

amount of $15.7 billion.

The proposed Child Care initiative primarily consists of increases in entitlement spending

and tax expenditures outside of the L-HHS-ED appropriations bill; for details see CRS Report

RL30021, Child Care Issues in the 106th Congress, by Karen Spar and Melinda Gish.

CRS-23

! The Maternal and Child Health Block Grant would be funded at $105 million

more than the request, which was for level funding at $695 million.

! The Centers for Disease Control and Prevention (CDC) would receive $183

million less than the request, and $99 less than the FY1999 amount of $2.8

billion.

! SAMHSA would be funded at $2.4 billion, $313 million less than the request

and $73 million less than the FY1999 amount of $2.5 billion; the Substance

Abuse Block Grant would be level funded at $1.6 billion.

! HCFA Program Management would be provided $264 million less than the

request and $391 million less than the FY1999 level of $2.1 billion.

! No funding would be provided for the Child Care and Development Block

Grant (CCDBG), which was funded at $1.2 billion in FY1999; the President

requested level funding.

! Head Start would be funded at $4.8 billion, $101 million more than the

FY1999 level but $507 million less than requested.

! The Administration on Aging would be level funded at $882 million, $166

million below the requested amount.

Senate Bill. As passed, the Senate bill differs from the House proposal with

regard to several programs.

! The bill would provide $17.6 billion for NIH, $0.7 billion more than the

House, and $2.0 billion more than the FY1999 amount.

! The Senate would provide $695 million for the Maternal and Child Health

Block Grant, $105 million less than the House, but the same as the request and

the FY1999 amount.

! The CDC would be funded at $140 million more than the House bill, and $41

million more than the FY1999 amount of $2.8 billion.

! SAMHSA would be provided $386 million more than the House proposal, and

$313 million more than the FY1999 amount of $2.5 billion; the Substance

Abuse Block Grant would be increased by $131 million, the same as the

request.

! HCFA Program Management would be funded at $239 million more than the

House amount, but $152 million less than the FY1999 amount of $2.1 billion.

! The CCDBG would be funded at $2.0 billion, $0.8 billion above the request

and the FY1999 amount; the House would terminate funding.

! Head Start would be funded at $5.3 billion, the same as the request but $507

below the House amount; the FY1999 amount was $4.7 billion.

Conference Report. The conference bill provides funding amounts for DHHS

programs similar to those in the President’s FY2000 budget request, with the

following exceptions.

! The NIH would be funded at $17.9 billion, $2.0 billion more than the request;

the FY1999 amount was $15.7 billion.

! HRSA programs would be funded at $4.7 billion, $433 million more than the

request; the FY1999 amount was $4.3 billion. Compared to the request, $79

million more would be provided for Community Health Centers, $92 million

more for Health Professions, and $84 million more for Ryan White AIDS

programs.

CRS-24

! The CDC would be funded at $3.0 billion, $107 million more than the request;

the FY1999 amount was $2.8 billion.

! The Administration on Aging would be funded at $934 million, $114 million

less than requested; the FY1999 amount was $882 million.

! The PHSSEF would be provided $584 million, $198 million more than the

request; the FY1999 amount was $223 million. The FY2000 amount includes

$75 million of initial funding for the Ricky Ray Hemophilia Relief Fund Act,

and $150 million for DHHS Year 2000 computer conversion program.

Abortion: A Perennial L-HHS-ED Issue. Since FY1977, the annual

L-HHS-ED appropriations acts have contained restrictions that limit the

circumstances under which federal funds can be used to pay for abortions to cases

where the life of the mother is endangered. Popularly referred to as the Hyde

Amendment, these provisions generally apply to all L-HHS-ED funds; Medicaid is the

largest program affected. The 103rd Congress modified the provisions to permit

federal funding of abortions in cases of rape or incest. The FY1998 L-HHS-ED

Appropriations Act, P.L. 105-78, extended the Hyde provisions to prohibit the use

of federal funds to buy managed care packages that include abortion coverage, except

in the cases of rape, incest, or life endangerment. For FY1999, the FY1998 Hyde

Amendment provisions were continued, along with a clarification to ensure that the

Hyde Amendment applies to all trust fund programs (namely, Medicare) funded by

the FY1999 L-HHS-ED Appropriations Act, P.L. 105-277, as well as an assurance

that Medicare + Choice plans are not required to provide abortion services. The

FY2000 L-HHS-ED Appropriations Act retains the FY1999 language without

amendment.4

Tobacco Revenues. The President’s FY2000 budget incorporates a 55

cents-a-pack increase in the federal cigarette excise tax, which would raise an

estimated $8 billion in additional revenue in FY2000, dropping to $6.4 billion in

FY2004. Those funds are not earmarked for specific DHHS programs, but would be

used to offset federal tobacco-related health care costs. The FY1999 Emergency

Supplemental Appropriations Act, P.L. 106-31, signed into law May 21, 1999,

prohibits federal recoupment of any state funds received from tobacco settlements and

permits states to spend any such funds collected without restriction.5

For Additional Reading

CRS Issue Briefs.

CRS Issue Brief 95095, Abortion: Legislative Response, by Karen J. Lewis and

Thomas P. Carr.

For additional information, see CRS Issue Brief IB95095, Abortion: Legislative Response,

by Karen J. Lewis and Thomas P. Carr.

For additional information, see CRS Report RL30058, Tobacco Master Settlement

Agreement (1998): Overview and Issues for the 106th Congress, by C. Stephen Redhead. For

comprehensive information, see the CRS Electronic Briefing Book on the Tobacco Settlement

at [http://www.congress.gov/brbk/html/ebtobtop.html].

CRS-25

CRS Issue Brief 98010, Head Start: Background and Funding, by Melinda Gish and

Karen Spar.

CRS Issue Brief IB10044, Immigration Legislation and Issues in the 106th Congress,

by Joyce Vialet, Coordinator.

CRS Issue Brief IB10018, Research and Development Funding: Fiscal Year 2000,

by Michael E. Davey, Coordinator.

CRS Issue Brief 93034, Welfare Reform, by Vee Burke.

CRS Reports.

CRS Report 95-1101, Abortion Procedures, by Irene E. Stith-Coleman.

CRS Report 96-293, AIDS Funding for Federal Government Programs: FY1981FY2000, by Judith A. Johnson.

CRS Report 98-476, AIDS: Ryan White CARE Act, by Judith A. Johnson and Sharon

Kearney.

CRS Report 96-617, Alien Eligibility for Public Assistance, by Joyce C. Vialet and

Larry M. Eig.

CRS Report 96-253, Cancer Research: Selected Federal Spending and Morbidity

and Mortality Statistics, by Judith A. Johnson.

CRS Report 98-740, The Centers for Disease Control and Prevention: An Overview,

by Paulette L. Como and Irene Stith-Coleman.

CRS Report RL30021, Child Care Issues in the 106th Congress, by Karen Spar and

Melinda Gish.

CRS Report 97-335, Cloning: Where Do We Go From Here?, by Irene E. StithColeman.

CRS Report RS20124, Community Services Block Grants: Background and

Funding, by Karen Spar.

CRS Report 97-917, Disease Funding and NIH Priority Setting, by Judith A.

Johnson.

CRS Report 94-396, The Earned Income Tax Credit: A Fact Sheet, by Melinda T.

Gish.

CRS Report 97-757, Health Centers, by Sharon Kearney.

CRS Report RS20266, Human Embryonic Stem Cell Research, by Irene StithColeman.

CRS Report 94-211, The Low-Income Home Energy Assistance Program: A Fact

Sheet, by Melinda Gish.

CRS Report 97-350, Maternal and Child Health Block Grant, by Sharon Kearney.

CRS Report RL30109, Medicare and Medicaid Organ Transplants, by Sibyl Tilson.

CRS Report 95-96, The National Institutes of Health: An Overview, by Pamela W.

Smith.

CRS Report 95-917, Older Americans Act: Programs and Funding, by Carol

O’Shaughnessy and Celinda Franco.

CRS Report 98-668, Refugee Admissions and Resettlement Policy: Facts and

Issues, by Joyce C. Vialet.

CRS Report 94-953, Social Services Block Grants (Title XX of the Social Security

Act), by Melinda Gish.

CRS Report 97-926, State Children’s Hospital Insurance Program: Guidance on

Frequently Asked Questions, by Jean Hearne and Jennifer A. Neisner.

CRS Report 98-692, State Children’s Hospital Insurance Program: Implementation

Progress, by Evelyne R. Parizek, et al.

CRS-26

CRS Report 97-844, The Substance Abuse and Mental Health Services

Administration (SAMHSA), by Cecilia Oregón Echeverría

CRS Report RL30058, Tobacco Master Settlement Agreement (1998): Overview

and Issues for the 106th Congress, by C. Stephen Redhead.

CRS Report 97-1048, The Title X Family Planning Program, by Sharon Kearney.

CRS Report 98-939, Violent Crime Reduction Trust Fund: An Overview, by David

Teasley.

CRS Report 98-115, Welfare Reform: Federal-State Financing Under the

Temporary Assistance for Needy Families Program, by Gene Falk.

CRS Report RL30082, Welfare Reform: Unspent TANF Funds, by Gene Falk.

CRS Electronic Briefing Book

Tobacco Briefing Book

[http://www.congress.gov/brbk/html/ebtobtop.html]

Selected World Wide Web Sites.

U.S. Department of Health and Human Services

[http://www.hhs.gov]

[http://www.hhs.gov/progorg/asmb/budget/index.html]

[http://www.hhs.gov/progorg/asmb/budget/fy2000.html]

[http://www.hhs.gov/news/speeches/990201.html]

Detailed Appropriation Table

Table 8 shows the appropriation details for offices and major programs of

DHHS.

CRS-27

Table 8. Detailed Department of Health and Human Services

Appropriations

($ in millions)

Office or major program

FY1999

final a

FY2000

request

Public Health Service (PHS)

Health Resources and Services

Administration (HRSA),

925

945

Community Health Centers

HRSA, National Health Service

115

Corps

HRSA, Health Professions

302

252

HRSA, Maternal and Child

695

Health Block Grant

HRSA, Ryan White AIDS

1,411

1,511

Programs

HRSA, Family Planning (Title

215

240

HRSA, Vaccine Injury

160

Compensation (mandatory)

HRSA, Other

461

391

HRSA, subtotal

4,284

4,209

Centers for Disease Control and

2,771

2,855

Prevention (CDC)

National Institutes of Health

15,653

15,893

(NIH)

Substance Abuse and Mental

Health Services Administration

289

359

(SAMHSA) Mental Health

Block Grant

SAMHSA Substance Abuse

1,584

1,715

Block Grant

SAMHSA, Other

614

653

Agency for Health Care Policy

102

and Research

PHS, subtotal

25,297

25,711

Health Care Financing Administration (HCFA)

Medicaid Grants to States

103,455

116,676

(mandatory)

Payments to Medicare Trust

62,823

69,289

Funds (mandatory)

Program Management

2,143

2,016

HCFA, subtotal

168,421

187,981

Administration for Children and Families (ACF)

—Family Support Payments to

States (Welfare, Child Support)

3,213

689

(mandatory)

—Low Income Home Energy

1,100

Assistance Program (LIHEAP)

FY2000

House

FY2000

Senate

FY2000

conference

985

1,024

116

115

117

302

227

344

800

695

710

1,519

1,611

1,595

215

222

239

275

4,272

479

4,433

563

4,652

2,672

2,812

2,962

16,895

17,602

17,873

300

359

356

1,585

1,715

1,600

529

726

699

104

111

26,357

27,688

28,253

116,676

69,289

1,752

187,717

1,991

187,956

1,995

187,960

689

3,191

1,100

CRS-28

Office or major program

FY1999

final a

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

—LIHEAP Emergency

300

Allocation

—Refugee and Entrant

515

431

424

431

Assistance

—Child Care and Development

1,183

2,000

Block Grant (CCDBG)

—Social Services Block Grant

1,909

2,380

1,909

2,380

(Title XX) (mandatory)

—Children and Family Services

4,659

5,267

4,760

5,267

Programs (CFSP), Head Start

—CFSP, Community Services

500

510

500

Block Grant

—CFSP, Child Welfare Services

292

—CFSP, Developmental

119

115

126

Disabilities

—CFSP, Other

484

410

458

500

—Violent Crime Reduction

105

119

105

—Rescission of permanent

-21

appropriations

—Promoting Safe and Sable

275

295

Families (mandatory)

—Foster Care and Adoption

Assistance State Payments

5,119

5,850

5,845

5,850

(mandatory)

ACF, subtotal

19,752

18,935

16,781

22,337

Administration on Aging

882

1,048

882

942

Office of the Secretary, Public

223

386

392

475

Health/Social Service Fund

Retirement Pay and Medical

Benefits, Commissioned

202

215

Officers (mandatory)

Office of the Secretary, Other

331

285

291

261

TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES

Total Appropriations b

215,108

234,560

232,637

239,845

239,180

Current Year: FY2000

181,947

199,400

197,310

200,260

202,701

FY2001

33,161

35,160

35,327

39,295

36,480

300

427

1,183

1,775

5,267

530

292

122

523

101

-21

295

5,845

20,930

934

584

215

303

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept.106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

Appropriation totals include discretionary and mandatory funds, and may be subject to additional

scorekeeping and other adjustments.

CRS-29

U.S. Department of Education

Discretionary appropriations for the U.S. Department of Education (ED) are

shown in Table 9, including the FY2000 budget proposal, the amounts in the House,

Senate, and conference bills, and the FY1999 enacted amount. Because

appropriations may consist of mixtures of budget authority enacted in various years,

two summary measures are used. Program level reflects only the appropriations in

the current bill, regardless of the year that they will be spent; it includes advances in

the current bill for future years (also shown separately in the table). Budget

authority represents (a) appropriations in the current bill for the current year, plus

(b) appropriations for the current year that were enacted in prior years (shown

separately in the table, as well). Budget authority is similar to the amount counted for

the 302(b) allocations ceilings. A discussion of advance appropriations as they relate

to 302(b) allocations may be found below (see page 32).

Table 9. Department of Education Discretionary Appropriations

($ in billions) a

FY1999

final b

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

Program level (from the

current bill for any year)

$33.3

$34.7

$33.3

$35.3

$35.7

Budget authority (for

current year from any bill)

28.8

32.8

24.7

30.1

29.5

Advances for future years

(from the current bill)

6.2

8.1

14.8

11.4

12.4

Advances from prior years

(from previous bills)

1.7

6.2

Type of funding

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept. 106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 3037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The amounts shown are for discretionary programs funded by the L-HHS-ED appropriation bill;

mandatory programs funded through the L-HHS-ED bill and other laws are not included.

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

The amount is less than $0.05 million.

A single mandatory ED program is included in the L-HHS-ED bill — the

Vocational Rehabilitation State Grants program — funded at $2.3 billion in FY1999.

Key Issues

President’s Request. Support for education has been one of the President’s top

priorities, and the FY2000 discretionary budget request for ED continues to reflect

that emphasis. The comprehensive reform of elementary and secondary education is

CRS-30

a major theme that includes accelerated change and increased accountability at the

school and classroom level, mastering educational basics, improved teaching for all

students, a safe and drug-free environment in the schools, assistance for increasing

college access and completion, and an Hispanic Initiative to meet the special

challenges of language and cultural barriers to education.

Discretionary increases of at least $100 million requested for ED programs under

the President’s FY2000 budget include the following.

! The largest ED discretionary increase (in terms of absolute dollars) is $400

million in additional funds proposed for 21st Century Community Learning

Centers; $200 million was provided in FY1999 for grants that support schoolbased programs providing multiple services to meet the needs of the

community.

! $103 million more is proposed for Educational Technology programs,

including additional funds for the Technology Literacy Challenge Fund,

Community-Based Technology Centers, and Middle-School Teacher Training.

! An additional $264 million is requested for Title I Grants to Local Educational

Agencies (LEAs) for the Education of the Disadvantaged.

! $200 million more is requested for the Class Size Reduction program, which

was first initiated under the FY1999 appropriations.

! $190 million more is requested for Adult Education and Family Literacy

programs, with the additional funds to be used for the State Grants program

and an English as a Second Language (ESL) and Civics Education Initiative.

! $120 million more is proposed for Gaining Early Awareness and Readiness for

Undergraduate Programs (GEAR UP).

Smaller increases are proposed for several other ED programs, including other

Education for the Disadvantaged programs ($53 million); Individuals with Disabilities

Education Act (IDEA) State Grants ($51 million) and National Activities ($64

million); Federal Work-Study ($64 million); and Research and Statistics ($68 million).

Decreases requested in the President’s budget include $128 million less for

Impact Aid programs. No funds are requested for the $375 million Innovative

Program Strategies (education block grant) program. In addition, a reduction of $70

million is proposed for the ED portion of the School-to-Work Opportunities Act

program, as part of an authorized phase-out by FY2001 of federal financial support.

A decrease of $241 million is requested in new FY2000 funding for the Pell

Grant program, which was funded at $7.7 billion in FY1999. However, the ED

Budget Service indicates that surplus funds available from prior years would be used

to boost spending for Pell Grants to $7.9 billion in FY2000. The FY2000 budget

includes a $125 increase in the maximum award to $3,250.

House Bill. At the Committee level, the House bill does not accept all of the

funding changes proposed in the President’s FY2000 budget.

! Impact Aid would receive $907 million, $171 million more than the President’s

request and $43 million more than in FY1999.

CRS-31

! Special Education State Grants would be funded at $5.6 billion, $449 million

above the request and $500 million above the FY1999 amount.

! Pell Grants would be provided $7.6 billion, $157 million more than the request,

but $84 million below the FY1999 amount. The maximum award would be

increased to $3,275.

! Innovative Program Strategies would be funded at $385 million, $10 million

above the FY1999 amount; the request was for program termination.

! $1.8 billion would be provided for a Teacher Empowerment Initiative, subject

to enactment of authorizing legislation, to replace the Class Size Reduction

program that was funded at $1.2 billion in FY1999.

! Title I Grants for LEAs would be level funded at $7.7 billion; the President

requested an increase of $264 million.

! Several major programs would be terminated under the House bill, including

Goals 2000: Educate America Act ($491 million in FY1999), School-to-Work

($125 million), Professional Development ($335 million), and GEAR UP

($120 million).

! Educational Technology programs would be funded at $500 million, a decrease

of $198 million compared to the FY1999 level of $698 million, and $301

million below the request.

! 21st Century Community Learning Centers would be funded at $300 million,

an increase of $100 million compared to the FY1999 amount, but $300 million

below the request.

! Adult Education would be funded at $378 million, a decrease of $7 million

compared to the FY1999 amount, and $197 below the request.

Senate Bill. As passed, the Senate bill differs from the House proposal with

regard to several programs.

! The four programs — Goals 2000: Educate America Act, School-to-Work,

Professional Development, and GEAR UP — that would be terminated under

the House bill would be funded at approximately the level requested by the

President, with the exception that GEAR UP would be funded at $180 million,

$60 million less than the request but $60 million more than the FY1999

amount.

! Educational Technology would be funded at $707 million, $207 million more

than the House amount; the FY1999 amount was $698 million.

! 21st Century Community Learning Centers would be funded at $400 million,

$100 million more than the House provision; the FY1999 amount was $200

million.

! Title I Grants for LEAs would be funded at $8.1 billion, $320 million more

than the House; the FY1999 amount was $7.7 billion.

! Special Education State Grants would be provided $5.8 billion, $200 million

more than the House level; the FY1999 amount was $5.1 billion.

! Adult Education would be funded at $488 million, $110 million more than the

House; the FY1999 amount was $385 million.

! Pell Grants would be funded at $7.8 billion, $158 million over the House

amount; the FY1999 amount was $7.7 billion. The maximum award would be

increased to $3,325.

! The Senate bill would fund a Teacher Assistance Initiative at $1.2 billion,

$0.6 billion less than the Teacher Empowerment Initiative in the House. The

CRS-32

initiative would replace the Class Size Reduction program, funded at $1.2

billion in FY1999.

Conference Report. The conference bill provides funding amounts for ED

programs similar to those in the President’s FY2000 budget request, with the

following exceptions.

! The bill would provide $1.3 billion for a Class Size/Teacher Assistance

Initiative to support hiring new teachers or otherwise meet local educational

needs; the initiative would replace the Class Size Reduction program, for

which $1.4 billion was requested, $200 million more than the FY1999 amount.

! The bill would provide $454 million for the 21st Century Community Learning

Centers, $146 million less than the request; the FY1999 amount was $200

million.

! Impact Aid programs would be funded at $911 million, $175 million more than

the request; the FY1999 amount was $864 million.

! Innovative Program Strategies would be funded at $380 million, a $5 million

increase over the FY1999 amount; the request was to terminate funding.

! Special Education State Grants would be funded at $5.8 billion, $649 million

more than the request; the FY1999 amount was $5.1 billion.

! Adult Education would be funded at $470 million, $105 million less than

requested; the FY1999 amount was $385 million.

! Pell Grants would receive $7.7 billion, $237 million more than requested; the

FY1999 amount was $7.7 billion as well. The maximum award would be

increased to $3,300, $175 above the FY1999 amount.

! The Fund for the Improvement of Education (FIE) would receive $250 million,

$110 million more than requested; the FY1999 amount was $139 million. The

FY2000 amount includes $50 million for comprehensive school reform grants

(increased from $25 million in FY1999) and $45 million for a Small Schools

Initiative.

Forward Funding and Advance Appropriations. Many of the larger ED

programs have either authorization or appropriation provisions that allow funding

flexibility for school program years that differ from the federal fiscal year. For

example, many of the elementary and secondary education formula grant programs

receive funding through appropriations that become available for obligation to the

states on July 1 of the same year as the appropriations, and remain available through

the end of the following fiscal year. That is, FY2000 appropriations for some

programs will become available for obligation to the states on July 1, 2000, and will

remain available for a 15-month period until September 30, 2001. This budgetary

procedure is popularly known as “forward” or “multi-year” funding, and is

accomplished through funding provisions in the L-HHS-ED appropriations bill.

Forward funding in the case of elementary and secondary education programs

was designed to allow additional time for school officials to develop budgets in

advance of the beginning of the school year. For Pell Grants, however, aggregate

program costs for individual students applying for assistance cannot be known with

certainty ahead of time. Appropriations from one fiscal year primarily support Pell

Grants during the following academic year, that is, the FY2000 appropriation

supports the 2000-2001 academic year. Unlike forward funded programs, however,

CRS-33

the funds remain available for obligation for 2 full fiscal years. Thus, if cost estimates

turn out to be too low, funds may be borrowed from the following year’s

appropriations, or conversely, if the estimates are too high, the surplus may be

obligated during the following year.

An advance appropriation occurs when the appropriations are provided for a

fiscal year beyond the fiscal year for which the appropriations act was enacted. In the

case of FY2000 appropriations, funds would normally become available October 1,

1999, under regular funding provisions, but would not become available until July 1,

2000, under the forward funding provisions discussed above. However, if the July 1,

2000 forward funding date were to be postponed for obligation by 3 months, until

October 1, 2000, the appropriation would be classified as an “advance appropriation”

since the funds would become available only in the next fiscal year (FY2001). For

Title I Basic Grants to LEAs, the FY1998 appropriation of $6.2 billion was split —

$4.8 billion of forward funding, and $1.4 billion as an advance appropriation. For

FY1999, $6.5 billion was split so that $1.5 billion was for forward funding and $5.0

billion was an advance appropriation. The FY2000 appropriation under P.L. 106-113

is $6.7 billion for Title I Basic Grants to LEAs, with forward funding of $1.7 billion,

plus an advance appropriation of $5.0 billion in forward funding, for an overall

increase of $0.2 billion.

What is the impact of these changes in funding provisions? At the program or

service level, relatively little is changed by the 3-month delay in the availability of

funds, since most expenditures for a standard school year occur after October 1. At

the appropriations level, however, a significant technical difference occurs because

forward funding is counted as part of the current fiscal year, and is therefore fully

included in the current 302(b) allocation for discretionary appropriations. Under

federal budget scorekeeping rules, an advance appropriation is not counted in the

302(b) allocation until the following year. In essence, a 3-month change from

forward funding to an advance appropriation for part or all of the annual

appropriations for a given program allows a one-time shift from the current year to

the next year in the scoring of discretionary appropriations.6

For Additional Reading

CRS Issue Briefs.

CRS Issue Brief IB10029, Education for the Disadvantaged: ESEA Title I

Reauthorization Issues, by Wayne Riddle.

CRS Issue Brief 98013, Elementary and Secondary Education Block Grant

Proposals in the 106th Congress, by Wayne C. Riddle and Paul M. Irwin.

CRS Issue Brief 98047, Elementary and Secondary: Reconsideration of the Federal

Role by the 106th Congress, by Wayne Riddle, et al.

CRS Issue Brief 98035, School Choice: Current Legislation, by Wayne Riddle and

James Stedman.

For additional information on budget enforcement procedures, see CRS Report 98-720,

Manual on the Federal Budget Process, by Robert Keith and Allen Schick.

CRS-34

CRS Reports.

CRS Report RL30106, Adult Education and Family Literacy Act, Title II of the

Workforce Investment Act of 1998, P.L. 105-220, by Paul M. Irwin.

CRS Report RS20156, Elementary and Secondary School Teachers: Action by the

106th Congress, by James B. Stedman.

CRS Report RL30128, Elementary and Secondary School Teachers: Selected

Federal Programs and Issues, by James B. Stedman.

CRS Report 98-676, Federal Elementary and Secondary Programs: Ed-Flex and

Other Forms of Flexibility, by Wayne Riddle.

CRS Report 95-502, Goals 2000: Educate America Act Implementation Status and

Issues, by James B. Stedman and Wayne C. Riddle.

CRS Report RL30075, Impact Aid: Overview and Reauthorization Issues, by

Richard N. Apling.

CRS Report RL30103, Individuals with Disabilities Education Act: Department of

Education Final Regulations, by Nancy Lee Jones and Richard N. Apling.

CRS Report 97-433, Individuals with Disabilities Education Act: Full Funding of

State Formula, by Richard N. Apling.

CRS Report 96-178, Information Technology and Elementary and Secondary

Education: Current Status and Federal Support, by James B. Stedman.

CRS Report 94-224, Rehabilitation Act: Major Programs, 105th Congress

Legislation, and Funding, by Carol V. O’Shaughnessy and Alice D. Butler.

CRS Report 97-760, The Safe and Drug-Free Schools and Communities Program,

by Cecilia Oregón Echeverría.

CRS Report 97-541, School-to-Work Opportunities Act, by Richard N. Apling.

CRS Report 98-969, Technology Challenge Programs in the Elementary and

Secondary Education Act, by Patricia Osorio-O’Dea.

CRS Report 98-957, TRIO and GEAR UP Programs: Provisions and Status, by

James B. Stedman.

Selected World Wide Web Sites.

U.S. Department of Education Home Page

[http://www.ed.gov/]

[http://www.ed.gov/offices/OUS/budget.html]

[http://www.ed.gov/offices/OUS/Budget00/]

[http://www.ed.gov/offices/OUS/Budget00/BudgetSumm/]

[http://www.ed.gov/Speeches/03-1999/00budtst.html]

Detailed Appropriation Table

Table 10 shows the appropriation details for offices and major programs of ED.

CRS-35

Table 10. Detailed Department of Education Appropriations

($ in millions)

Office or major program

FY1999

final a

FY2000

request

Education Reform, Goals

491

2000: Educate America Act

—School-to-Work

125

Opportunities

—Educational Technology

698

801

—21 Century Community

200

600

Learning Centers

Office of Elementary and Secondary Education

—Title I Education for the

Disadvantaged, Grants to

7,732

7,996

LEAs

—Education for the

695

748

Disadvantaged, Other

—Impact Aid

864

736

—School Improvement (SI),

335

Professional Development

—SI, Innovative Program

375

Strategies

—SI, Class Size Reduction,

Teacher Empowerment or

1,200

1,400

Assistance Initiative

—SI, Safe and Drug-Free

566

591

Schools

—SI, Magnet Schools

104

114

Other School Improvement

231

283

Reading Excellence Act

260

286

Indian Education

Bilingual and Immigrant

380

415

Education

Office of Special Education and Rehabilitative Services

—Special Education, State

5,055

5,106

Grants b

—Special Education,

279

343

National Activities

—Vocational Rehabilitation

2,304

2,339

State Grants (mandatory)

—Rehabilitation Services,

348

378

Other

Special Institutions for

138

142

Persons With Disabilities

Office of Vocational and Adult Education

Vocational Education

1,154

1,163

Adult Education

358

575

Incarcerated Youth

Offenders

FY2000

House

FY2000

Senate

FY2000

conference

494

491

500

707

769

300

400

454

7,732

8,052

7,941

686

699

760

907

892

911

335

385

375

380

1,800

1,200

1,300

566

636

606

104

260

200

112

304

285

110

296

260

380

394

400

5,555

5,755

278

281

282

2,339

348

354

369

143

144

1,204

378

1,170

488

1,193

470

CRS-36

Office or major program

FY1999

final a

FY2000

request

FY2000

House

FY2000

Senate

FY2000

conference

7,620

7,778

7,700

629

631

880

934

100

260

286

293

660

232

219

630

180

311

219

645

200

396

219

253

258

277

250

Student Financial Assistance

—Pell Grants c

7,704

7,463

—Supplemental Educational

619

631

Opportunity Grants

—Federal Work-Study

870

934

—Federal Perkins Loans,

100

Capital Contributions

—Federal Perkins Loans,

Loan Cancellations

— Leveraging Educational

Assistance Partnership

(LEAP)

Federal Family Education

Loans, Administration

Higher Education, Aid for

260

294

Institutional Development

—Federal TRIO Programs

600

630

—GEAR UP

120

240

—Other Higher Education

313

415

Howard University

214

219

College Housing and

Academic Facilities Loans,

Administration

Office of Educational Research and Improvement

—Research and Statistics

252

320

—Fund for the Improvement

139

140

of Education

—Other Research and

Improvement

Departmental Management

462

493

TOTALS, DEPARTMENT OF EDUCATION

Total Appropriations d

35,615

37,051

459

475

488

35,660

37,633

38,042

—Current Year: FY2000

29,410

28,977

20,878

26,221

25,594

—FY2001

6,205

8,073

14,782

11,412

12,448

Source: Amounts are compiled from the H.R. 3194 conference report, H.Rept. 106-479.

Note: The FY2000 conference amounts do not show a 0.38% general discretionary fund reduction.

FY2000 amounts reflect H.R. 2037, as reported (House); S. 1650, as passed (Senate); and H.R. 3424

(H.R. 3194 conference).

The FY1999 amounts are based on P.L. 105-277 and P.L. 106-31.

The FY1999 appropriation for Special Education State Grants included an advance appropriation

of $210 million from previous legislation.

The ED Budget Service indicates that surplus funds available from prior years would be used to

boost spending for Pell Grants to $7.9 billion in FY2000.

Appropriation totals include discretionary and mandatory funds, and may be subject to additional

scorekeeping and other adjustments.

CRS-37

Related Agencies

Discretionary appropriations for the L-HHS-ED Related Agencies are shown in

Table 11, including the FY2000 budget proposal, the amounts in the House, Senate,