19–006 

112TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 112–468 

DISPOSITION OF UNCLAIMED MONEY AND CLOTHING 

RECOVERED AT AIRPORT SECURITY CHECKPOINTS 

MAY 8, 2012.—Committed to the Committee of the Whole House on the State of the 

Union and ordered to be printed 

Mr. KING of New York, from the Committee on Homeland Security, 

submitted the following 

R E P O R T 

together with 

ADDITIONAL VIEWS 

[To accompany H.R. 2179] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Homeland Security, to whom was referred the 

bill (H.R. 2179) to amend title 49, United States Code, to direct the 

Assistant Secretary of Homeland Security (Transportation Security 

Administration) to transfer unclaimed money recovered at airport 

security checkpoints to United Service Organizations, Incorporated, 

and for other purposes, having considered the same, report favorably thereon with an amendment and recommend that the bill as 

amended do pass. 

CONTENTS 

Page 

Purpose and Summary ............................................................................................ 2 

Background and Need for Legislation .................................................................... 2 

Hearings ................................................................................................................... 3 

Committee Consideration ........................................................................................ 3 

Committee Votes ...................................................................................................... 3 

Committee Oversight Findings ............................................................................... 3 

New Budget Authority, Entitlement Authority, and Tax Expenditures ............. 4 

Congressional Budget Office Estimate ................................................................... 4 

Statement of General Performance Goals and Objectives .................................... 6 

Congressional Earmarks, Limited Tax Benefits, and Limited Tariff Benefits ... 6 

Federal Mandates Statement ................................................................................. 6 

Preemption Clarification ......................................................................................... 6 

Advisory Committee Statement .............................................................................. 6 


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Applicability to Legislative Branch ........................................................................ 6 

Section-by-Section Analysis of the Legislation ...................................................... 7 

Changes in Existing Law Made by the Bill, as Reported ..................................... 7 

Additional Views ...................................................................................................... 10 

The amendment is as follows: 

Strike all after the enacting clause and insert the following: 

SECTION 1. DISPOSITION OF UNCLAIMED MONEY AND CLOTHING RECOVERED AT AIRPORT 

SECURITY CHECKPOINTS. 

(a) IN GENERAL.—Section 44945 of title 49, United States Code, is amended to 

read as follows: 

‘‘§ 44945. Disposition of unclaimed money and clothing 

‘‘(a) UNCLAIMED MONEY.—Notwithstanding section 3302 of title 31, unclaimed 

money recovered at any airport security checkpoint shall be annually transferred, 

without further appropriation, by the Assistant Secretary of Homeland Security 

(Transportation Security Administration) to United Service Organizations, Incorporated, to provide funding for the activities of United Service Organizations, Incorporated, in support of USO airport centers. 

‘‘(b) UNCLAIMED CLOTHING.— ‘‘(1) IN GENERAL.—In disposing of unclaimed clothing recovered at any airport 

security checkpoint, the Assistant Secretary shall make every reasonable effort, 

in consultation with the Secretary of Veterans Affairs, to transfer the clothing 

to local veterans organizations or other local charitable organizations for distribution to homeless or needy veterans and veteran families. 

‘‘(2) AGREEMENTS.—In implementing paragraph (1), the Assistant Secretary 

may enter into agreements with airport authorities. 

‘‘(3) OTHER CHARITABLE ARRANGEMENTS.—Nothing in this subsection shall 

prevent an airport or the Transportation Security Administration from donating 

unclaimed clothing to a charitable organization of their choosing. 

‘‘(4) LIMITATION.—Nothing in this subsection shall create a cost to the Government. 

‘‘(c) ANNUAL REPORT.—The Assistant Secretary shall submit, on an annual basis, 

to the Committee on Homeland Security and the Committee on Appropriations of 

the House of Representatives and the Committee on Commerce, Science, and Transportation and the Committee on Appropriations of the Senate a report that contains 

a detailed description of— 

‘‘(1) the amount of unclaimed money described in subsection (a) recovered in 

total and at each individual airport; and 

‘‘(2) the amount of unclaimed money described in subsection (a) transferred 

to United Service Organizations, Incorporated, under this section and the dates 

of such transfers.’’. 

(b) CLERICAL AMENDMENT.—The item relating to such section in the table of sections at the beginning of chapter 449 of such title is amended to read as follows: 

‘‘44945. Disposition of unclaimed money and clothing.’’. 

(c) REPEAL.—Section 515(b) of the Department of Homeland Security Appropriations Act, 2005 (118 Stat. 1318; 49 U.S.C. 44945 note) is repealed. 

PURPOSE AND SUMMARY

The purpose of H.R. 2179 is to amend title 49, United States 

Code, to direct the Assistant Secretary of Homeland Security 

(Transportation Security Administration) to transfer unclaimed 

money recovered at airport security checkpoints to United Service 

Organizations, Incorporated, and for other purposes. 

BACKGROUND AND NEED FOR LEGISLATION

This bill directs the Transportation Security Administration 

(TSA) to transfer unclaimed money recovered at airport security 

checkpoints to United Service Organizations, Inc. (USO) for use in 

support of its airport centers. The legislation will support the continued efforts of the USO by providing funds to create a welcoming 

and comfortable atmosphere at airports for our dedicated military 

personnel and their families. In addition, this bill also directs TSA 


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to provide clothing assistance to homeless or needy veterans with 

unclaimed clothing recovered at airport security checkpoints. 

The Committee recognizes that TSA is currently responsible for 

collecting the monies left at checkpoints and that there is an expense associated with the collection and processing of those monies. 

The Committee encourages TSA and the USO to work out a process 

that works best for both entities for such collection and processing. 

The requirement to transfer unclaimed monies recovered at airport checkpoints to the USO applies to existing balances of such 

monies. At the time of the Committee’s filing of this report, the 

Congressional Budget Office estimates that $1.2 million currently 

remains unspent at TSA from unclaimed money recovered at airport security checkpoints. The total existing balance upon the date 

of enactment of this Act should be transferred to the USO. 

HEARINGS

No hearings were held on H.R. 2179. 

COMMITTEE CONSIDERATION

The Subcommittee on Transportation Security met on March 7, 

2012, to consider H.R. 2179, and ordered the measure reported to 

the Full Committee with a favorable recommendation, without 

amendment, by voice vote. 

The Committee met on March 28, 2012, to consider H.R. 2179, 

and ordered the measure to be reported to the House with a favorable recommendation, amended, by voice vote. 

The Committee adopted H.R. 2179, as amended, by voice vote. 

The following amendments were offered: 

An Amendment in the Nature of a Substitute was offered by 

Mr. Rogers (#1); was AGREED TO, by voice vote. 

An amendment to the Amendment in the Nature of a Substitute offered by Ms. Hochul (#1A); was AGREED TO, by voice 

vote. 

Page 1, line 1, insert after ‘‘Unclaimed Money’’ the following: ‘‘And Clothing’’. 

Page 1, line 5, insert after ‘‘unclaimed money’’ the following: ‘‘and clothing’’. 

Page 1, line 6, strike ‘‘In General.—’’ and insert ‘‘Unclaimed Money.—’’. 

Page 1, after line 13, insert a new subparagraph entitled ‘‘(b) Unclaimed Clothing. 

Page 1, line 14, strike ‘‘(b)’’ and insert ‘‘(c)’’. 

Page 2, after line 9, insert a new subsection entitled ‘‘(b) Clerical Amendment.’’ 

COMMITTEE VOTES

Clause 3(b) of rule XIII of the Rules of the House of Representatives requires the Committee to list the recorded votes on the motion to report legislation and amendments thereto. 

No recorded votes were requested during consideration of 

H.R. 2179. 

COMMITTEE OVERSIGHT FINDINGS

Pursuant to clause 3(c)(1) of rule XIII of the Rules of the House 

of Representatives, the Committee has held oversight hearings and 

made findings that are reflected in this report. 


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NEW BUDGET AUTHORITY, ENTITLEMENT AUTHORITY, AND TAX

EXPENDITURES

In compliance with clause 3(c)(2) of rule XIII of the Rules of the 

House of Representatives, the Committee finds that H.R. 2179 

would result in no new or increased budget authority, entitlement 

authority, or tax expenditures or revenues. 

CONGRESSIONAL BUDGET OFFICE ESTIMATE

The Committee adopts as its own the cost estimate prepared by 

the Director of the Congressional Budget Office pursuant to section 

402 of the Congressional Budget Act of 1974. 

U.S. CONGRESS, 

CONGRESSIONAL BUDGET OFFICE, 

Washington, DC, April 12, 2012. 

Hon. PETER T. KING, 

Chairman, Committee on Homeland Security, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for H.R. 2179, a bill to amend title 

49, United States Code, to direct the Assistant Secretary of Homeland Security (Transportation Security Administration) to transfer 

unclaimed money recovered at airport security checkpoints to 

United Service Organizations, Incorporated, and for other purposes. 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Megan Carroll. 

Sincerely, 

DOUGLAS W. ELMENDORF. 

Enclosure. 

H.R. 2179—A bill to amend title 49, United States Code, to direct 

the Assistant Secretary of Homeland Security (Transportation 

Security Administration) to transfer unclaimed money recovered 

at airport security checkpoints to United Service Organizations, 

Incorporated, and for other purposes 

Summary: According to the Transportation Security Administration (TSA), airline passengers have left behind roughly $400,000 in 

unclaimed money at airport security checkpoints in each of the 

past two fiscal years. H.R. 2179 would amend current law to require TSA to transfer such unclaimed funds to a nonprofit organization that provides assistance to military personnel. 

CBO estimates that enacting H.R. 2179 would increase net direct 

spending by about $1 million in 2013; therefore, pay-as-you-go procedures apply. We also estimate that that near-term increase in direct spending would be fully offset by a corresponding reduction in 

direct spending in later years, resulting in no significant net 

change over time. Enacting H.R. 2179 would not affect revenues or 

spending subject to appropriation. 

H.R. 2179 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. 


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Estimated cost to the Federal Government: The estimated budgetary impact of H.R. 2179 is shown in the following table. The costs 

of this legislation fall within budget function 400 (transportation). 

By fiscal year, in millions of dollars— 

2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2013– 

2017 

2013– 

2022 

CHANGES IN DIRECT SPENDING 

Estimated Budget Authority .. 0 0 0 0 0 0 0 0 0 0 0 0 

Estimated Outlays ................. 1 * * * * * * * * * * * 

Note: * = between $500,000 and ¥$500,000. 

Basis of estimate: Under current law, TSA has authority to retain and spend unclaimed money left at security checkpoints by air 

passengers, without appropriation, for activities related to aviation 

security. H.R. 2179 would amend current law to require TSA to 

transfer such unclaimed funds to United Service Organizations, Incorporated (USO), a nonprofit organization that provides assistance 

to military personnel. 

Based on historical spending patterns, CBO expects that, under 

current law, TSA would spend unclaimed checkpoint money gradually over the next several years. Therefore, requiring the agency to 

transfer amounts to USO would accelerate outlays. Because the 

amount of money involved is modest, CBO does not expect this 

change would have a significant net impact on the budget with regard to checkpoint money collected in future years. 

For purposes of this estimate, however, CBO assumes that the 

requirement to transfer unclaimed checkpoint money would apply 

to existing balances of such funds, which totaled approximately 

$1.2 million at the start of fiscal year 2012. Relative to current law, 

we estimate that transferring those funds to USO would increase 

net direct spending by about $1 million in 2013. We also estimate 

that the near-term increase would be fully offset over the next several years by lower outlays for aviation security, resulting in no 

significant net change in direct spending over the next 10 years. 

Pay-As-You-Go Considerations: The Statutory Pay-As-You-Go Act 

of 2010 establishes budget-reporting and enforcement procedures 

for legislation affecting direct spending or revenues. The net 

changes in outlays that are subject to those pay-as-you-go procedures are shown in the following table. 

CBO ESTIMATE OF PAY-AS-YOU-GO EFFECTS FOR H.R. 2179, AS ORDERED REPORTED BY THE 

HOUSE COMMITTEE ON HOMELAND SECURITY ON MARCH 28, 2012 

By fiscal year, in millions of dollars— 

2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2012– 

2017 

2012– 

2022 

NET INCREASE OR DECREASE (¥) IN THE DEFICIT 

Statutory Pay-As-YouGo Impact ............. 0 1 0 0 0 0 0 0 0 0 0 0 0 

Intergovernmental and Private-sector impact: H.R. 2179 contains 

no intergovernmental or private-sector mandates as defined in 

UMRA and would impose no costs on state, local, or tribal governments. 


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Estimate prepared by: Federal Costs: Megan Carroll; Impact on 

State, Local, and Tribal Governments: J’nell L. Blanco; Impact on 

the Private Sector: Paige Piper/Bach. 

Estimate approved by: Theresa Gullo, Deputy Assistant Director 

for Budget Analysis. 

STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES

Pursuant to clause 3(c)(4) of rule XIII of the Rules of the House 

of Representatives, H.R. 2179 contains the following general performance goals, and objectives, including outcome related goals and 

objectives authorized. 

H.R. 2179 provides additional funds to the USO for its activities 

in support of USO airport centers by requiring the TSA to transfer 

unclaimed money recovered at airport checkpoints to the USO. The 

TSA is also required to consult with the Department of Veterans 

Affairs to transfer unclaimed clothing to local veterans organizations or other local charitable organizations for distribution to 

homeless or needy veterans and their families. 

The Committee acknowledges that many airports throughout the 

country have existing agreements with local organizations to donate clothing and other items left behind at security checkpoints. 

H.R. 2179 preserves the ability of airports to donate clothing to any 

organizations. 

CONGRESSIONAL EARMARKS, LIMITED TAX BENEFITS, AND LIMITED

TARIFF BENEFITS

In compliance with rule XXI of the Rules of the House of Representatives, this bill, as reported, contains no congressional earmarks, limited tax benefits, or limited tariff benefits as defined in 

clause 9(e), 9(f), or 9(g) of the rule XXI. 

FEDERAL MANDATES STATEMENT

The Committee adopts as its own the estimate of Federal mandates prepared by the Director of the Congressional Budget Office 

pursuant to section 423 of the Unfunded Mandates Reform Act. 

PREEMPTION CLARIFICATION

In compliance with section 423 of the Congressional Budget Act 

of 1974, requiring the report of any Committee on a bill or joint 

resolution to include a statement on the extent to which the bill or 

joint resolution is intended to preempt State, local, or Tribal law, 

the Committee finds that H.R. 2179 does not preempt any State, 

local, or Tribal law. 

ADVISORY COMMITTEE STATEMENT

No advisory committees within the meaning of section 5(b) of the 

Federal Advisory Committee Act were created by this legislation. 

APPLICABILITY TO LEGISLATIVE BRANCH

The Committee finds that the legislation does not relate to the 

terms and conditions of employment or access to public services or 

accommodations within the meaning of section 102(b)(3) of the Congressional Accountability Act. 


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SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION

Section 1. Disposition of unclaimed money and clothing recovered 

at airport security checkpoints 

Section 44945 of title 49, U.S. Code is amended as follows: 

Unclaimed Money 

The Transportation Security Administration (TSA) Assistant Secretary is directed to annually transfer unclaimed money recovered 

at any airport security checkpoint to United Service Organizations 

(USO), Incorporated, to provide funding for its activities in support 

of USO airport centers. 

Unclaimed Clothing 

The Assistant Secretary, in consultation with the Secretary of 

Veterans Affairs, is required to transfer unclaimed clothing recovered at any airport checkpoint to local veterans organizations or 

other local charitable organizations for distribution to homeless or 

needy veterans and their families. This section does not preclude 

the TSA from donating unclaimed clothing to additional charitable 

organizations. Nothing in this subsection will create a cost to the 

Government. 

Annual Report 

The Assistant Secretary is required to submit to the Committee 

on Homeland Security and the Committee on Appropriations of the 

House and the Committee on Commerce, Science, and Transportation and the Committee on Appropriations of the Senate an annual report that includes a detailed description of the amount of 

unclaimed money recovered at each individual airport and the 

amount of unclaimed money transferred to the USO and the dates 

of the transfers. 

Clerical Amendment 

The table of sections at the beginning of chapter 449 is amended 

to read as follows: ‘‘44954. Disposition of unclaimed money and 

clothing.’’. 

Repeal 

Section 515(b) of the Department of Homeland Security Appropriations Act, 2005 is repealed. 

CHANGES IN EXISTING LAW MADE BY THE BILL, AS REPORTED

In compliance with clause 3(e) of rule XIII of the Rules of the 

House of Representatives, changes in existing law made by the bill, 

as reported, are shown as follows (existing law proposed to be omitted is enclosed in black brackets, new matter is printed in italic, 

existing law in which no change is proposed is shown in roman): 

TITLE 49, UNITED STATES CODE 

* * * * * * * 

SUBTITLE VII—AVIATION PROGRAMS 

* * * * * * * 


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PART A—AIR COMMERCE AND SAFETY 

* * * * * * * 

SUBPART III—SAFETY 

* * * * * * * 

CHAPTER 449—SECURITY 

SUBCHAPTER I—REQUIREMENTS 

Sec. 

44901. Screening passengers and property. 

* * * * * * * 

SUBCHAPTER II—ADMINISTRATION AND PERSONNEL 

* * * * * * * 

ø44945. Disposition of unclaimed money.¿ 

44945. Disposition of unclaimed money and clothing. 

* * * * * * * 

SUBCHAPTER II—ADMINISTRATION AND PERSONNEL 

* * * * * * * 

ø§ 44945. Disposition of unclaimed money 

øNotwithstanding section 3302 of title 31, unclaimed money recovered at any airport security checkpoint shall be retained by the 

Transportation Security Administration and shall remain available 

until expended for the purpose of providing civil aviation security 

as required in this chapter.¿ 

§ 44945. Disposition of unclaimed money and clothing 

(a) UNCLAIMED MONEY.—Notwithstanding section 3302 of title 31, 

unclaimed money recovered at any airport security checkpoint shall 

be annually transferred, without further appropriation, by the Assistant Secretary of Homeland Security (Transportation Security 

Administration) to United Service Organizations, Incorporated, to 

provide funding for the activities of United Service Organizations, 

Incorporated, in support of USO airport centers. 

(b) UNCLAIMED CLOTHING.— 

(1) IN GENERAL.—In disposing of unclaimed clothing recovered at any airport security checkpoint, the Assistant Secretary 

shall make every reasonable effort, in consultation with the Secretary of Veterans Affairs, to transfer the clothing to local veterans organizations or other local charitable organizations for 

distribution to homeless or needy veterans and veteran families. 

(2) AGREEMENTS.—In implementing paragraph (1), the Assistant Secretary may enter into agreements with airport authorities. 

(3) OTHER CHARITABLE ARRANGEMENTS.—Nothing in this subsection shall prevent an airport or the Transportation Security 

Administration from donating unclaimed clothing to a charitable organization of their choosing. 

(4) LIMITATION.—Nothing in this subsection shall create a 

cost to the Government. 


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(c) ANNUAL REPORT.—The Assistant Secretary shall submit, on an 

annual basis, to the Committee on Homeland Security and the Committee on Appropriations of the House of Representatives and the 

Committee on Commerce, Science, and Transportation and the 

Committee on Appropriations of the Senate a report that contains 

a detailed description of— 

(1) the amount of unclaimed money described in subsection 

(a) recovered in total and at each individual airport; and 

(2) the amount of unclaimed money described in subsection 

(a) transferred to United Service Organizations, Incorporated, 

under this section and the dates of such transfers. 

* * * * * * * 

DEPARTMENT OF HOMELAND SECURITY 

APPROPRIATIONS ACT, 2005 

* * * * * * * 

TITLE V—GENERAL PROVISIONS 

* * * * * * * 

SEC. 515. (a) * * * 

ø(b) ANNUAL REPORT.—Not later than 180 days after the date of 

enactment of this Act and annually thereafter, the Administrator 

of the Transportation Security Administration shall transmit to the 

Committee on Transportation and Infrastructure of the House of 

Representatives; the Committee on Appropriations of the House of 

Representatives; the Committee on Commerce, Science and Transportation of the Senate; and the Committee on Appropriations of 

the Senate, a report that contains a detailed description of the 

amount of unclaimed money recovered in total and at each individual airport, and specifically how the unclaimed money is being 

used to provide civil aviation security.¿ 

* * * * * * * 


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ADDITIONAL VIEWS 

As a Member of Congress, there is no greater honor than serving 

those who serve our country in uniform. In that spirit, I was honored earlier this year when I had the privilege of seeing off nearly 

75 soldiers from the New York Army National Guard Special 

Troops Battalion as they mobilized for a possible overseas deployment. 

We ask so much of our brave men and women who leave their 

homes and families behind to defend our freedom. That is why I 

joined this Committee in advancing H.R. 2179. The unclaimed currency directed to the United Service Organizations by this legislation will help ensure that every service member and military family member travelling through an American airport is treated with 

the respect they deserve. 

I was also proud to work with this Committee to amend this bill 

to cover clothing left at airport security checkpoints. My amendment, which was drafted with bipartisan cooperation, would require the TSA to make every reasonable effort to transfer unclaimed clothing to local veterans organizations and other local 

charitable organizations for distribution to homeless or needy veterans and their families. This would be done in consultation with 

the Department of Veterans Affairs, which already hosts ‘‘Stand 

Down’’ events across the country that provide clothing and other 

goods and services to homeless veterans. 

According to the Department of Veterans Affairs, approximately 

75,000 veterans are homeless on any given night, and over 20,000 

veterans of the wars in Iraq and Afghanistan have been homeless 

within the last five years. This is a national tragedy. We must end 

veteran homelessness and, until we do, we must do everything we 

can to provide for homeless veterans and their families. 

I thank Chairman King, Ranking Member Thompson, Chairman 

Rogers, Ranking Member Jackson Lee, and the Chairman of the 

Committee on Veterans’ Affairs, Jeff Miller, for their leadership on 

this issue and look forward to working with them and this Committee to advance this important legislation and pass it into law. 

KATHLEEN C. HOCHUL. 

Æ 


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