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[Senate Report 114-380]
[From the U.S. Government Publishing Office]

                                                      Calendar No. 684
114th Congress     }                                    {       Report
                                 SENATE
 2d Session        }                                    {      114-380

======================================================================

 
      REFORMING AMERICAN INDIAN STANDARDS OF EDUCATION ACT OF 2016

                                _______
                                

               November 17, 2016.--Ordered to be printed

                                _______
                                

          Mr. Barrasso, from the Committee on Indian Affairs,
                        submitted the following

                              R E P O R T

                         [To accompany S. 2580]

    The Committee on Indian Affairs, to which was referred the 
bill (S. 2580) to establish the Indian Education Agency to 
streamline the administration of Indian education, and for 
other purposes, having considered the same, reports favorably 
thereon with an amendment (in the nature of a substitute) and 
recommends that the bill, as amended, do pass.

                                PURPOSE

    The purpose of S. 2580 is to establish the Indian Education 
Agency that would streamline the administration of Native 
American education.

                               BACKGROUND

    The Bureau of Indian Education (BIE), a division of the 
U.S. Department of the Interior under the Assistant Secretary 
for Indian Affairs, administers a school system that educates 
approximately 48,000 students in 183 elementary, secondary, and 
two post-secondary schools.\1\ The BIE funded schools are 
located on 64 reservations in 23 states. In Fiscal Year 2016, 
the BIE was appropriated $852,367,000 for school operations\2\ 
and $138,245,000 for school construction.\3\
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    \1\Bureau of Indian Education: Examining Organizational Challenges 
in Transforming Educational opportunities for Indian Children, Hearing 
Before the Senate Committee on Indian Affairs, 114th Cong. (2015) 
(statement of Charles Roessel, Director, Bureau of Indian Education).
    \2\U.S. Dept. of the Interior, Indian Affairs, Budget 
Justifications. Fiscal Year 2017, pg. IA-BIA-1.
    \3\Id.
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    The initial underlying policies for federal Native American 
education were driven in large measure to attempt to assimilate 
Indian people and tribes into the non-Indian culture and 
society.\4\ Additionally, treaties signed between Indian tribes 
and the United States often had specific agreements to provide 
for the education of Indians, in exchange for Indian lands. 
Thus, responsibility for Indian education emanates from these 
treaties and embodied as part of the trust relationship between 
the federal government and Indian tribes.
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    \4\U.S. Senate. Committee on Labor and Public Welfare. Indian 
Education: A National Tragedy--A National Challenge. (Rpt. 91-501, pg. 
8-10) 1969.
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    In 1819, Congress passed the Indian Civilization Act, which 
authorized an annual ``civilization fund'' of $10,000 per year, 
to convert Indians from hunters to agriculturalists.\5\ 
Eventually, monies from this fund mostly went to mission 
schools.
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    \5\Id. (pg. 11).
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    In 1832, Congress mandated the responsibility for the 
education of Native Americans be placed under the Commissioner 
of Indian Affairs.\6\ It was at this time, the federal 
government created schools that trained Native Americans in 
agriculture in 16 schools and 87 boarding schools across the 
country.\7\
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    \6\Act of July 9, 1832, c.174, Sec. 1, 4 Stat. 564 (codified at 25 
U.S.C. Sec. 2). The Bureau of Indian Affairs (BIA) was administratively 
established by Secretary of War John Calhoun on March 11, 1824. On July 
9, 1832, Congress gave the BIA statutory authority (4 Stat. 564, chap. 
174). The BIA was then transferred, by Congress, to the Department of 
the Interior, in 1849 (9 Stat. 395).
    \7\U.S. Senate. Committee on Labor and Public Welfare. Indian 
Education: A National Tragedy--A National Challenge, Rpt. No. 91-501, 
at 11 (1969).
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    In the 1870s, the Federal government began converting 
abandoned U.S. Army posts and barracks to serve as its Indian 
boarding school system. These boarding schools were often run 
in a military fashion and forced many Native American children 
to abstain from speaking in their traditional languages.\8\ In 
1879, the first off-reservation boarding school, the Carlisle 
Indian Industrial School, opened in Carlisle, Pennsylvania.
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    \8\Id., at 12.
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    In 1921, Congress passed the Snyder Act of 1921 which 
provided broad authorization for Indian programs, including 
education. Despite this authority and attention, Indian 
education programs struggled. The conditions which the Indian 
children had to endure were deeply troubling. For example, 
health conditions at most of these Indian schools were 
``deplorable'', according to the 1928 Meriam Report.\9\ This 
Report also found in particular:
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    \9\Inst. For Gov't Research, The Problem of Indian Administration 
(1928), at 329 (commonly referred to as the Meriam Report).

          ``Old buildings, often kept in use long after they 
        should have been pulled down, and admittedly bad fire-
        risks in many instances; crowded dormitories; 
        conditions of sanitation that are usually perhaps as 
        good as they can be under the circumstances, but 
        certainly below accepted standards; boilers and 
        machinery out-of-date and in some instances unsafe, to 
        the point of having long since been condemned [. . 
        .]''\10\
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    \10\ Id.

    In the 1920s and 1930s, the Indian programs and services 
began expanding as a whole, including expanding Indian 
education to Alaska Natives.\11\ In 1979, Congress amended the 
Elementary and Secondary Education Act of 1965 (ESEA) to 
include bilingual education program set-asides for Native 
American students and the Bureau of Indian Affairs schools.\12\ 
In 1972, Congress authorized the Indian Education Act of 1972, 
P.L. 92 318, also known as Title VII of ESEA. This law 
established the Office of Indian Education, within the 
Department of Health, Education and Welfare, to make grants to 
local educational agencies that serve Indian children.
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    \11\ Roger Walke, Cong. Research Serv., RL34205, Federal Indian 
Elementary--Secondary Education Programs: Background and Issues.
    \12\ Elementary and Secondary Education Amendments of 1966, Pub. L. 
No. 89-750, 80 Stat. 1191 (1966).
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    In 1975, Congress passed the Indian Self-Determination and 
Education Assistance Act (ISDEAA). This Act allows Indian 
tribes and tribal organization to negotiate self-determination 
contracts with the BIA for tribal management of specific 
schools or dormitories.\13\
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    \13\ Indian Self-Determination and Education Assistance Act of 
1975, Pub. L. No. 93-638, 88 Stat. 2203 (1975).
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    In 1978, Congress passed the Education Amendments Act of 
1978.\14\ This Act amended ESEA to include Title XI, Indian 
Education, and created the Office of Indian Education Programs 
(OIEP), which was in charge of operations of all education 
personnel by the BIA. The law further provided that a director 
would be in charge of the OIEP and established requirements and 
guidelines for the BIA-funded school system.
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    \14\ Education Amendments Act of 1978, Pub. L. No. 95-561, 92 Stat. 
2143 (1978).
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    In 1988, Congress further amended Title XI of the ESEA with 
passage of the Indian Education Amendments of 1988.\15\ The 
Indian Education Amendments Act addressed safety concerns for 
the BIA schools and dormitories, including procedures for 
closure or consolidation. It also authorized the BIA 
administrative cost grants, among other grants. Included in 
P.L. 100-297 was the Tribally Controlled Schools Act of 1988, 
which authorized tribes to receive grants to operate the BIA-
funded schools, in addition to ISDEAA contracts.
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    \15\Pub. L. No. 100-297, 102 Stat. 130 (1988).
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    In 2006, the Office of Indian Education Programs was 
renamed to the Bureau of Indian Education (BIE), by the 
Secretary of the Interior, and created a new director to 
oversee the BIE.\16\
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    \16\U.S. Dept. of the Interior, Indian Affairs, Budget 
Justifications, Fiscal Year 2008, at IA-EDUC-5-6. See also 25 CFR Part 
32.
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Bureau of Indian Education

    The Bureau of Indian Education (BIE) is headed by a 
Director, who is responsible for the line direction and 
management of all education functions, including the formation 
of policies and procedures, the supervision of all program 
activities and the approval of the expenditure of funds 
appropriated for education functions. The BIE schools are 
subject to the standards and accountability provisions in the 
Elementary and Secondary Education Act (ESEA), as amended by 
the Every Student Succeeds Act (ESSA).
    Elementary and secondary schools funded by the BIE may be 
operated either directly by the BIE or by tribes and tribal 
organizations through contracts or grants authorized under the 
Tribally Controlled Schools Act of 1988 or the Indian Self-
Determination and Education Assistance Act of 1975. Currently, 
tribes or tribal organizations manage 129 of the 183 elementary 
and secondary schools. As of September 1, 1996, Congress has 
prohibited the BIE from funding additional schools.

                          NEED FOR LEGISLATION

    The Bureau of Indian Education (BIE) has, for many years, 
experienced instability as well as poor management and 
performance in educating Indian children. For example, since 
1979, the leadership position overseeing Indian education 
through both agencies, the BIA and BIE, has been filled by 33 
different directors.\17\
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    \17\Bureau of Indian Education: Examining Organization Challenges 
in Transforming Educational Opportunities for Indian Children, Hearing 
Before the Senate Committee on Indian Affairs, 114th Cong. (2015) 
(statement of Charles Roessel, Director, Bureau of Indian Education).
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    The academic achievement of the students has fallen behind 
that of students from other schools for years. Management 
instability impedes other aspects of educational services. Too 
many BIE facilities are in poor and even dangerous conditions. 
The BIE schools face other challenges such as teacher 
recruitment and retention.
    The Government Accountability Office (GAO) has chronicled 
many of these challenges in reports and testimonies before 
Senate and House Committees.\18\ For example, on February 27, 
2015, the House of Representatives Committee on Appropriations 
Subcommittee on Interior, Environment, and Related Agencies 
held an oversight hearing over the management challenges of the 
BIE, at which the GAO testified that:
---------------------------------------------------------------------------
    \18\Bureau of Indian Affairs and Bureau of Indian Education, 
Hearing Before the House Subcommittee on Interior, Environment, and 
Related Agencies, Committee on Appropriations, 114th Cong. (2015) 
(statement of Melissa Emrey-Arras, Director, Gov't Accountability 
Office).

          ``Management challenges within the Department of 
        Interior's Office of Assistant Secretary--Indian 
        Affairs (Indian Affairs), such as fragmented 
        administrative structures and frequent turnover in 
        leadership, continue to hamper efforts to improve 
        Indian education. For example, incompatible procedures 
        and lack of clear roles for the Bureau of Indian 
        Education and the Indian Affairs' Deputy Assistant 
        Secretary for Management (DAS-M), which provides 
        administrative functions to BIE, such as human 
        resources and acquisitions, contribute to delays in 
        schools acquiring needed materials and resources. 
        According to BIE officials, some DAS-M staff are not 
        aware of the necessary procedures and timelines to meet 
        schools' needs.''\19\
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    \19\Id.

    Additionally, the GAO testified on the Bronner Report, 
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stating:

          ``[I]n 2011, Indian Affairs commissioned another 
        study--the Bronner report--to evaluate the 
        administrative support structure for the BIE and BIA. 
        That report, issued in March 2012, found that 
        organizations within the Interior, including the DAS-M, 
        BIA and BIE, do not coordinate effectively and 
        communication among them is poor.''\20\
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    \20\Id.

    Despite these challenges, the BIE schools are still needed 
because, without them, many Native students would not be able 
to attend any school at all. The federal government in 
implementing its trust responsibility for the education of 
Indian students is in need of immediate and effective 
improvements.
    Reforms. Efforts to reform the BIE have been unsuccessful. 
Most recently, in 2014, the Administration released the 
``Bureau of Indian Education Blueprint for Reform'' (Blueprint) 
to improve Indian education.
    The Blueprint was based largely on written comments and 
feedback during tribal consultations conducted in 2013. The 
goal of the Blueprint is to increase student achievement and 
recruit high performing teachers, by giving greater control and 
access to Indian tribes. The reorganization efforts includes 
re-prioritizing existing staff positions, creating new area 
offices, and developing a six-year plan aimed at improving 
dilapidated school facilities.
    To date, the Blueprint reform efforts have been slow and 
often confusing to understand. For example, the chairman of the 
House Education and Workforce Committee, John Kline, stated he 
had concerns with the BIE Blueprint restructuring, during a May 
14, 2015 oversight hearing.\21\
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    \21\Examining the Federal Government's Mismanagement of Native 
American Schools, Hearing Before the House Committee on Education and 
the Workforce, 114th Cong. (2015) (statement of John Kline, Rep., 
U.S.).
---------------------------------------------------------------------------
    Furthermore, in its report on ``Better Management and 
Accountability Needed to Improve Indian Education'' the GAO 
noted that,

          ``The realignment [Blueprint] is intended to improve 
        efficiency in delivering services to Indian Affairs 
        stakeholders, including BIE schools. However, it is 
        unclear to what extent, if at all, the changes will 
        result in improved services for BIE schools [emphasis 
        added].''\22\
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    \22\U.S. Gov't Accountability Office, GAO-13-774, Indian Affairs: 
Better Management and Accountability Needed to Improve Indian Education 
(2013).

    While not every proposal in the Blueprint is questionable 
or without merit, one conclusion is clear--the management 
issues at the BIE need to be addressed before any of 
improvements or the recommendations in the Administration's 
Blueprint or even the GAO recommendations can be achieved. 
Accordingly, legislation is needed to address the management 
issues and to establish clear authorities, roles, and 
responsibilities for education services.
    The Department of the Interior and the Office of the 
Assistant Secretary, which oversee both the BIA and the BIE, 
appear to be reluctant to make the required administrative 
changes to begin properly addressing the issues.\23\ In 2013, 
the Department submitted a proposed realignment plan to the 
House and Senate Appropriations Committees to implement its 
Blueprint. The GAO noted in its report that,
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    \23\Out of the five GAO recommendations from their report (GAO-13-
774), the Department of the Interior has implemented only one 
recommendation. The remaining recommendations relate to developing and 
implementing decision-making process for BIE, developing a 
communication strategy for BIE, developing and implementing BIA goals 
to help support BIE mission, and revising the BIA strategic workforce 
plan to ensure that employees are providing administrative support to 
BIE. U.S. Gov't Accountability Office, GAO-13-774, Indian Affairs: 
Better Management and Accountability Needed to Improve Indian Education 
(2013).

          ``[t]he process Indian Affairs followed to develop 
        the realignment plan is unclear and Indian Affairs did 
        not consult BIE officials on the specific changes 
        outlined in the realignment request it submitted to 
        Congress. For example, it did not consult with BIE on 
        transferring the responsibilities for most of BIE's 
        administrative functions to BIA regional offices 
        [emphasis added]. Additionally, although Indian Affairs 
        informed Congress that the realignment would be 
        overseen by an Executive Implementation Oversight 
        Board, several senior BIE officials, including an 
        acting BIE Director, reported that they were not asked 
        for input into the new plan. Indian Affairs officials 
        acknowledged that their office had not consulted with 
        BIE officials on potential organizational changes since 
        before the Bronner report was issued in March 
        2012.''\24\
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    \24\U.S. Gov't Accountability Office, GAO-13-774, Indian Affairs: 
Better Management and Accountability Needed to Improve Indian Education 
(2013).

    The need for structural improvement has been highlighted by 
former BIE employees as well. In testimony before the 
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Committee, the GAO noted,

          ``In a December 2011 memo to Secretary Salazar, BIE's 
        former Director expressed frustration with the current 
        organizational structure of Indian Affairs and asserted 
        that the `major challenges facing BIE cannot be 
        overcome . . . until basic structure and governance 
        issues are addressed and resolved.' In addition, 
        according to his memo, `because of this disjointed 
        system, points-of-view concerning the effectiveness of 
        support functions do not necessarily originate from a 
        similar organizational culture, mindset, or most 
        importantly, mission outcomes [emphasis added].' 
        Additionally, he noted that `the outcome of student 
        achievement is often overshadowed and leaves our Bureau 
        fighting to focus attention on education priorities and 
        competing for leftover resources scattered throughout 
        the larger organization.'''\25\
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    \25\Management Challenges Continue to Hinder Efforts to Improve 
Indian Education, Hearing Before the House Subcommittee on Interior, 
Environment, and Related Agencies, Committee on Appropriations, 113th 
Cong. (2013) (statement of George A. Scott, Director, Gov't 
Accountability Office).
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                              BILL SUMMARY

    The Reforming American Indian Standards of Education 
(RAISE) Act of 2016 would modernize and streamline the Bureau 
of Indian Education (BIE) into an independent agency, under the 
Department of the Interior (DOI). The purpose of this 
legislation is to address management issues highlighted by past 
Congressional reports, the Government Accountability Office 
(GAO), and former BIE employees. The bill provides an 
organizational structure more suitable to providing educational 
services to Native American students. It represents a first 
step toward improving educational services and academic 
achievement for Native American children.
    A director would be appointed by the President for a six-
year term to run the agency. The agency would have two 
permanent career assistant directors overseeing school 
operations and school academic programs.
    This structure would provide enough autonomy to the 
director and assistant directors to better manage the agency 
(with minimal interference from the BIA or DOI). Similar 
legislation has been enacted to provide autonomy for teaching 
children in the Department of Defense Education Activity 
schools.
    The bill would firmly resolve who is in charge of the 
education of Native American students. The director would no 
longer have to get approval from the Assistant Secretary of 
Indian Affairs to construct and repair schools or plan and 
develop annual budgets. Under current law, the director of the 
BIE still has to work with the Deputy Assistant Secretary of 
Indian Affairs for budget allocations.

                          LEGISLATIVE HISTORY

    On February 25, 2016, Senator Barrasso introduced S. 2580, 
the Reforming American Indian Standards of Education (RAISE) 
Act of 2016. A House companion bill has not been introduced, at 
this time.
    A legislative hearing was held on April 6, 2016. At the 
legislative hearing, Acting Assistant Secretary of Indian 
Affairs, Lawrence Roberts, testified that the Administration 
has concerns that an independent agency may require ``too much 
growing of the administrative functions'' and that it might 
take too much time to create a new agency.\26\ Mr. Roberts, 
though, indicated the Administration would be willing to work 
with the Committee to address those concerns. Patricia 
Whitefoot, President of the National Indian Education 
Association, testified that her organization supports ``a 
progressive first step [. . .] the elevation of the BIE 
Director from a career to a political appointee.''\27\
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    \26\Legislative Hearing on S. 2304, S. 2468, S. 2580, S. 2711, 
Before the Senate Committee on Indian Affairs, 114th Cong. (2016) 
(statement of Lawrence Roberts, Assistant Secretary for Indian Affairs, 
Dept. of the Interior).
    \27\:Legislative Hearing on S. 2304, S. 2468, S. 2580, S. 2711, 
Before the Senate Committee on Indian Affairs, 114th Cong. (2016) 
(statement of Patricia Whitefoot, President, National Indian Education 
Association).
---------------------------------------------------------------------------
    On May 11, 2016, the Committee held a business meeting to 
consider S. 2580, among other education-related bills. An 
amendment, in the nature of a substitute, was offered by 
Senator Barrasso. The substitute amendment would provide 
certain authorization amounts for the Indian Education Agency. 
The substitute amendment would amend the titles of the 
assistant directors and provide clarification of the functions 
of the director and assistant directors. Finally, the 
substitute amendment would mandate the President include each 
Fiscal Year a separate request for funds for construction of 
school facilities.
    By voice vote, the Committee ordered the bill to be 
reported favorably to the Senate, as amended by Senator 
Barrasso's substitute amendment.

                SECTION-BY-SECTION ANALYSIS, AS AMENDED

Section 1. Short title

    Section 1 sets forth the short title of the bill as the 
RAISE Act, Reforming American Indian Standards of Education.

Section 2. Definitions

    Section 2 defines the new Agency name, Assistant Directors, 
and Director.

Section 3. Establishment

    Section 3 establishes the purpose and activities in 
carrying out the Indian Education Agency and sets the functions 
of the director and two assistant directors. The director would 
be appointed by the president and confirmed by the Senate to 
serve a six year term. The director can be reappointed for 
unlimited terms. One assistant director would oversee school 
operations and the other would oversee school academic 
programs. Each assistant director would be career employees of 
the agency.

Section 4. Termination of Bureau of Indian Education; transfer of 
        functions

    The Bureau of Indian Education's organization, as it 
currently exists, would cease and be transferred to the new 
independent agency, under the Department of the Interior.

Section 5. Budget requests for school construction funds

    This section provides that the President is responsible and 
shall submit a separate budget for the construction of Indian 
Education Agency schools each Fiscal Year.

Section 6. Use of school construction funds

    This section provides that the director shall give priority 
to Indian Education Agency schools having the most serious 
capacity or facility-condition deficiencies.

Section 7. Personnel

    This section sets certain salary rates for the director and 
assistant directors. Indian preference hiring would apply to 
all individuals, except the director.

Section 8. Reports

    Eighteen months after enactment (and annually thereafter), 
the director of the new agency will submit reports to Congress, 
in consultation with Indian tribes that have agency schools, 
regarding the activities of the agency, an assessment of the 
effectiveness of the new structure, and recommendations for 
legislation to improve the agency.

Section 9. Regulations

    Section 9 provides that the director shall issue 
appropriate regulations, as the director determines. The 
Secretary of the Interior does not have to approve those 
appropriate regulations.

Section 10. Authorization of appropriations

    This section authorizes $983,000,000 for Fiscal Year 2017 
and each Fiscal Year thereafter, of which $130,000,000 shall be 
used for school construction.

                   COST AND BUDGETARY CONSIDERATIONS

                                     U.S. Congress,
                               Congressional Budget Office,
                                      Washington, DC, June 6, 2016.
Hon. John Barrasso,
Chairman, Committee on Indian Affairs
U.S. Senate, Washington, DC.
    Dear Mr. Chairman: The Congressional Budget Office has 
prepared the enclosed cost estimate for S. 2580, the Reforming 
American Indian Standards of Education Act of 2016.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact is Leah 
Koestner.
            Sincerely,
                                                        Keith Hall.
    Enclosure.

S. 2580--Reforming American Indian Standards of Education Act of 2016

    Summary: S. 2580 would create the Indian Education Agency, 
terminate the Bureau of Indian Education, and transfer 
responsibility for administering Indian education programs to 
the new agency. The bill would authorize the appropriation of 
$983 million for 2017 and each fiscal year thereafter.
    CBO estimates that enacting S. 2580 would cost $4.5 billion 
over the 2017-2021 period, assuming appropriation of the 
authorized amounts.
    Enacting S. 2580 would not affect direct spending or 
revenues; therefore, pay-as-you-go procedures do not apply. CBO 
estimates that enacting the bill would not increase net direct 
spending or on-budget deficits in any of the four consecutive 
10-year periods beginning in 2027.
    S. 2580 contains no intergovernmental or private-sector 
mandates as defined in the Unfunded Mandates Reform Act (UMRA) 
and would impose no costs on state, local, or tribal 
governments.
    Estimated cost to the Federal Government: The estimated 
budgetary effect of S. 2580 is shown in the following table. 
The costs of this legislation fall within budget function 500 
(education, training, employment, and social services).

----------------------------------------------------------------------------------------------------------------
                                                                    By fiscal year, in millions of dollars--
                                                              --------------------------------------------------
                                                                2017    2018    2019    2020    2021   2017-2021
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                                 INCREASES IN SPENDING SUBJECT TO APPROPRIATION
 
Authorization Level..........................................     983     983     983     983     983     4,915
Estimated Outlays............................................     653     884     965     983     983     4,468
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    Basis of estimate: For this estimate, CBO assumes that the 
bill will be enacted near the end of fiscal year 2016, that the 
authorized amounts will be appropriated each year, and that 
spending will follow the historical patterns for similar 
programs.
    S. 2580 would authorize the appropriation of $983 million 
for fiscal year 2017 and each fiscal year thereafter, of which 
$130 million would be available for school construction. In 
fiscal year 2016, the Congress provided $852 million to the 
Bureau of Indian Education, as well as $138 million to the 
Bureau of Indian Affairs for construction of schools. CBO 
estimates that implementing the bill would cost $4.5 billion 
over the 2017 2021 period.
    Pay-As-You-Go considerations: None.
    Increase in long term net direct spending and deficits: CBO 
estimates that enacting S. 2580 would not increase net direct 
spending or on-budget deficits in any of the four consecutive 
10-year periods beginning in 2026.
    Intergovernmental and private sector impact: S. 2580 
contains no intergovernmental or private-sector mandates as 
defined in UMRA and would impose no costs on state, local, or 
tribal governments.
    Estimate prepared by: Federal Costs: Leah Koestner, Impact 
on State, Local, and Tribal Governments: Rachel Austin, Impact 
on the Private Sector: Amy Petz.
    Estimate approved by: H. Samuel Papenfuss, Deputy Assistant 
Director for Budget Analysis June 6, 2016.

               REGULATORY AND PAPERWORK IMPACT STATEMENT

    Paragraph 11(b) of rule XXVI of the Standing Rules of the 
Senate requires each report accompanying a bill to evaluate the 
regulatory and paperwork impact that would be incurred in 
carrying out the bill. The Committee believes that S. 2580 will 
have a minimal impact on regulatory or paperwork requirements.

                        EXECUTIVE COMMUNICATIONS

    The Committee has received no communications from the 
Executive Branch regarding S. 2580.

                        CHANGES IN EXISTING LAW

    In accordance with subsection 12 of rule XXVI of the 
Standing Rules of the Senate, the Committee finds that the 
enactment of S.2580 will not make any changes in existing law.

                                  [all]
```