Appropriations for FY2005: Legislative Branch
Released: 2004-12-13T00:00:00

Most Recent Developments

On November 20, 2004, both houses agreed to the conference report on a consolidatedappropriations bill ( H.R. 4818 ), containing the FY2005 legislative branchappropriations bill, along with eight other regular annual appropriations bills on which action hadnot yet been completed. (1) H.R. 4818 was signedby the President on December 8, 2004( P.L. 108-447 , 118 Stat. 2809; 658 pages).

Introduction to the Legislative Branch Appropriations Bill

The annual legislative branch appropriations bill contains two titles. Appropriations forlegislative branch agencies are contained in Title I. Title II contains general administrativeprovisions, and from time to time, appropriations for legislative branch entities. For example, in theFY2003 Act Title II contained funding for the John C. Stennis Center for Public Service Trainingand Development and the Congressional Award Act.

Congress changed the structure of the annual legislative branch appropriations bill effective in FY2003. Prior to enactment of the FY2003 bill, and effective in FY1978, the legislative branchappropriations bill was divided into two titles. Title I, Congressional Operations, contained budgetauthorities for activities directly serving Congress. Included in this title were the budgets of theHouse, the Senate, Joint Items (joint House and Senate activities), the Office of Compliance, theCongressional Budget Office (CBO), the Architect of the Capitol (AOC) (except the Library ofCongress (LOC) buildings and grounds), the Congressional Research Service (CRS) within theLibrary of Congress, and congressional printing and binding activities of the Government PrintingOffice (GPO).

Title II, Related Agencies, contained budgets for activities not directly supporting Congress. Included in this title were budgets of the Botanic Garden, the Library of Congress (except theCongressional Research Service), the Library buildings and grounds maintained by the Architect ofthe Capitol, the Government Printing Office (except congressional printing and binding costs), andthe Government Accountability Office (GAO), formerly named the General Accounting Office. Periodically since FY1978, the bill contained additional titles for such purposes as capitalimprovements and special one-time functions.

In addition to activities funded in the annual legislative branch appropriations bill, other legislative budget authorities include permanent budget authority for both federal funds and trustfunds, and non-legislative entities. These include the following:

Permanent federal funds are available as the result of previously enacted legislation and do not require annual action. (2)

Permanent trust funds are monies held in accounts credited with collections from specific sources earmarked by law for a defined purpose. Trust funds do not appear in the annual legislativebill since they are not budget authority. They are included in the U.S. Budget, prepared by the Officeof Management and Budget, either as budget receipts or offsetting collections. (3)

The U.S. Budget also contains non-legislative entities within the legislative branch budget. They are funded in other appropriation bills, but are counted as legislative branch funds by the Officeof Management and Budget for bookkeeping purposes. (4)

For a more accurate picture of the legislative branch budget, as contained in the annual legislative branch appropriation bill, the total FY2005 legislative branch appropriation figure in theFY2005 U.S. Budget must be adjusted. This is accomplished by subtracting non-legislative fundsand permanent federal and trust funds. The FY2005 U.S. Budget contains a legislative budgetauthority request of $4.4 billion. After subtracting non-legislative entities ($48 million), permanentfederal funds ($358 million), and permanent trust funds ($27 million), the total request for entitiesfunded in the regular annual appropriation bill is $3.97 billion.

Table 1. Legislative Branch Appropriations, FY1995 - FY2005 (budget authority in billions of current dollars) a

a. These figures represent current dollars, exclude permanent budget authorities, and contain supplementals and rescissions. Permanent budget authorities are not included in theannual legislative branch appropriations bill, but rather, are automatically fundedannually.

b. Includes budget authority contained in the FY1999 regular annual Legislative BranchAppropriations Act ( P.L. 105-275 ), the FY1999 emergency supplemental appropriation( P.L. 105-277 ), and the FY1999 supplemental appropriation ( P.L. 106-31 ).

c. Includes budget authority contained in the FY2000 regular annual Legislative BranchAppropriations Act ( P.L. 106-57 ); a supplemental and a 0.38% rescission in P.L.106-113 ; and supplementals in P.L. 106-246 and P.L. 106-554 .

d. This figure contains: (1) FY2001 regular annual appropriations contained in H.R. 5657 , legislative branch appropriations bill; (2) FY2001 supplementalappropriations of $118 million and a 0.22% across-the-board rescission contained in H.R. 5666 , miscellaneous appropriations bill; and (3) FY2001 supplementalappropriations of $79.5 million contained in H.R. 2216 ( P.L. 107-20 ). H.R. 5657 and H.R. 5666 were incorporated by reference in P.L. 106-554 , FY2001 Consolidated Appropriations Act. The first FY2001legislativebranch appropriations bill, H.R. 4516 , was vetoed Oct. 30, 2000. Thesecond legislative branch appropriations bill, H.R. 5657 , was introducedDec. 14, 2000, and incorporated in P.L. 106-554 . This figure does not reflect anyterrorism supplementals funds released pursuant to P.L. 107-38 .

e. This figure contains regular annual appropriations in P.L. 107-68 ; transferred from thelegislative branch emergency response fund pursuant to P.L. 107-117 ; and FY2002supplemental appropriations in P.L. 107-206 .

f. This figure contains regular annual appropriations in P.L. 108-7 , FY2003 OmnibusAppropriations Act, and supplemental appropriations in P.L. 108-11 .

g. This figure contains regular annual appropriations in P.L. 108-83 , FY2004 LegislativeBranch Appropriations Act. Additional FY2004 provisions which did not containappropriations were contained in P.L. 108-199 , the FY2004 Consolidated AppropriationsAct.

h. This figure contains regular annual appropriations in P.L. 108-447 , ConsolidatedAppropriations Act, FY2005.

Status of FY2005 Appropriations

Table 2. Status of Legislative Branch Appropriations,FY2005 ( P.L. 108-447 , Consolidated Appropriations Act, FY2005)

a. The bill was marked up by the House Subcommittee on Legislative Branch on June 16, 2004.

b. The Senate Subcommittee on Legislative Branch did not hold a formal markup.

Action on the FY2005 Legislative Branch Appropriations Bill (H.R. 4755; S. 2666; Incorporated in H.R. 4818, Consolidated Appropriations Act, FY2005)

Submission of FY2005 Budget Request on February 3, 2004. A substantial part of the 12.5% increase requested is to meet (1)mandatory expenses, which includes funding for annual salary adjustments required by lawand related personnel expenses, such as increased government contributions to retirementbased on increased pay, and (2) expenses related to increases in the costs of goods andservices due to inflation.

Submission of FY2005 Budget Amendments on May 6, 2004. The President submitted amendments to pending FY2005 legislativebranch budgets. These amendments were based on requests of legislative branch entities, and contain an additional $2.7 million in net discretionary resources. The amendments containfunds for the Senate ($1.7 million), (5) Joint EconomicCommittee ($4,000), Capitol GuideService and Special Services Office ($5,000), Library of Congress Copyright Office($810,000), (6) and Congressional Research Service($200,000). (7)

Another amendment eliminated a proviso governing the use of some appropriations requested for the Congressional-Executive Commission on the People's Republic of China. The commission is not funded in the annual legislative appropriation bill, but rather is placedin the legislative branch section of the U.S. Budget by the Office of Management and Budgetfor bookkeeping purposes.

House Hearings on FY2005 Budget Request. The first House hearing scheduled for February 25, 2004, wascancelled that morning by Representative Jack Kingston, chairman of the Subcommittee onLegislative Branch. Referring to significant increases in agency requests, RepresentativeKingston stated that

With record deficits, a war on terrorism, and troops on the ground in Afghanistan and Iraq, the budget is too tight to waste our timeentertaining requests for a 40-percent spending increase. The President's budget calls for anincrease of less than one-percent in non-defense and non-homeland security discretionaryspending but these 'inside the beltway' bureaucracies want 32- to 45-percent increases. (8)

The chairman subsequently requested the heads of legislative entities to resubmit revised, reduced budgets, and to explain the impact on authorized staff levels.

Among legislative entities with requests containing increases of 32% or more are the Capitol Police (32.7%) and the Architect of the Capitol (45.2%). The Office of Compliancerequested a 31.6% increase.

On April 22, 2004, the House held its first hearing, considering budget requests of the House of Representatives and GAO. Hearings continued April 28 on the budgets of theCapitol Police and GPO, and were followed by May 12 hearings on the budget submissionsof the AOC, LOC, and Capitol Visitors' Center (CVC). Plans are pending for a closedhearing on Capitol Hill security.

Senate Hearings on FY2005 Budget Requests. The Senate Subcommittee on Legislative Branch, Committee onAppropriations, held hearings March 4 on budget submissions of the GAO, GPO, and CBO;March 11 on the budget request of the LOC, including the CRS; April 1 on the budgets of theSenate Sergeant at Arms and the Capitol Police; and April 8 on the budgets of the Secretaryof the Senate and AOC.

FY2005 302(b) Allocation for the House and Senate Subcommittees on Legislative Branch. Both houses agreed to a FY2005budget authority cap of $3.575 billion for discretionary agencies and programs under thejurisdiction of the Subcommittees on Legislative Branch. The limit allows a 1.3% increaseover FY2004 enacted budget authority. (9)

House Subcommittee Markup of FY2005 Bill. As approved by the House Subcommittee on Legislative Branch, theFY2005 bill contains $2.75 billion (excluding Senate funds), the same as FY2004; the amountreflects a 16.4% decrease from the request of $3.2 billion (excluding Senate funds). According to a House Appropriations Committee press release, the frozen FY2005 fundinglevel:

maintains the current staff levels in legislative branchagencies;

funds completely the annual comparability adjustment forstaff;

funds a fitness facility for House staff; and

contains no funds for new major construction projects by the AOC,directing that resources of the Architect by used for on ongoing projects, specificallymentioning the CVC. (10)

The bill contains the following new budget authority for legislative branch entities:

$1.044 billion for the House of Representatives , a 3.6% increase over $1.008 billion;

$232 million for the U.S. Capitol Police , a 5.5% increase over $220million;

$35 million for the Congressional Budget Office , a 2.9% increase over$34 million;

$272 million for the Architect of the Capitol (excluding funds for Senateoffice buildings), a decrease of 20% from $340 million;

$543 million for the Library of Congress , a 3.8% increase over $523million;

$121 million for the Government Printing Office , a decrease of 10.4%from $135 million; and

$474 million for the Government Accountability Office , a 3.5% increaseover $458 million.

The subcommittee considered four amendments, adopting one. These included amendments to

eliminate the Joint Economic Committee (offered by Chairman Jack Kingston). Amendment was withdrawn pending further consideration before full committeemarkup;

remove a provision of law prohibiting the use of funds to establish adental and vision benefits program for House employees (offered by ranking minority memberJames Moran). Amendment was withdrawn subject to further study;

prohibit funding for the U.S. Capitol Police mounted horse unit (offeredby Representative Mark Steven Kirk). Amendment was adopted by voice vote;and

prohibit lame-duck Members of Congress from filing ethics complaintsagainst other Members (offered by Representative Ray LaHood). Amendment failed 5-5.

House Full Committee Markup of the FY2005 Bill. During its June 23 markup, the full committee approved thesubcommittee's recommendations after agreeing to the following six amendments:

manager's amendment (offered by Chairman Jack Kingston) containing seven provisions: (1) expressing gratitude to House employees for assistance during thefuneral of President Ronald Reagan; (2) directing changes in the administrative reorganizationof the U.S. Capitol Police force; (3) authorizing a review of the appointment process, salarydetermination, and retirement benefits for top personnel in legislative branch agencies; (4)directing the House Chief Administrative Officer to monitor compliance by vendors withHouse prepayment policies; (5) authorizing GAO to study overlap of research on economicissues by the Joint Economic Committee, CRS, CBO, and the Joint Committee on Taxation; (11) (6) encouraging the GAO to undertake additional technology assessment studies as Congressdirects; and (7) prohibiting use of funds in the bill to pay employees of the legislative branchmore than a Member of Congress. The manager's amendment was agreed to by voicevote;

an amendment to strike a prohibition on the use of funds to study a dental and vision care benefits program for employees of the House (offered by rankingminority member James Moran); the amendment did not strike a prohibition on the inclusionof Members in such a study; amendment was agreed to by voice vote;

an amendment to strike the prohibition on the use of funds to study dental and vision care benefits for Members (offered by Representative John Doolittle);amendment was agreed to by voice vote;

an amendment to encourage Members to use hydro-electric vehicles or alternative fuel vehicles while on official business travel (offered by Representative ZachWamp); amendment, as amended (see below), was agreed to by voicevote;

an amendment to the Wamp amendment to include alternative fuel vehicles (offered by Representative Marcy Kaptur); amendment to the amendment was agreedto by voice vote; and

an amendment to prohibit the construction of a perimeter fence around the Capitol (offered by Representative Sam Farr); amendment was agreed to by voicevote.

The committee did not agree to three amendments that sought to

add $2.4 million to the Open World program located in the Library of Congress (12) (offered by Representative DavidPrice); amendment failed by a vote of 25-29;

establish the Accountability and Review of Federal Agencies Commission "to study non-defense and non-mandatories for redundancies" (13) (offered byRepresentative Todd Tiahrt); amendment failed by voice vote; and

reduce the appropriation for the Joint Economic Committee by 50% (offered by Representative Jack Kingston); amendment failed by voicevote.

In its report, the committee addressed its expectations of significant future savings directing legislative agencies (1) to submit "more reasonable" funding requests reflective of budget constraints faced by all federal agencies; (2) to "streamline" their organizations,outsource operations, apply "best practices" management principles, and use existingtechnology to enhance operations; (3) to "examine potential outsourcing opportunities" inalmost all operations; and (4) to cooperate in a study to determine means to centralize thedistribution of printed material in the legislative branch. (14)

House Report of FY2005 Bill (H.R. 4755). On July 1, the House Appropriations Committee reported H.R. 4755 , as marked up on June 23 ( H.Rept. 108-577 ). See discussion of theHouse markup in this report.

House Passage of FY2005 Bill (H.R. 4755). The House passed H.R. 4755 on July 12 after rejectingthe following two amendments and a motion to recommit: (15)

an amendment to add $30 million to the appropriation for the GAO (salaries and expense account) to establish within the agency the Center for Science andTechnology Assessment, and offset the increase by reducing the appropriation for the AOC(general administration account) by $15 million and the appropriation for the GPO(congressional printing and binding account) also by $15 million (offered by RepresentativeRush Holt); amendment was rejected by a vote of 115-252, vote #359;

an amendment to provide for a 1% reduction in appropriations or amounts made available in the bill that are not required to be appropriated or made available(offered by Representative Joel Hefley); amendment was rejected by a vote of 87-278, vote#360; and

a motion to recommit the bill to committee with an amendment which limited each House committee to a maximum of $25,000 for postage expenses (offered byRepresentative Brad Sherman); motion was rejected 163-205, vote #361.

Senate Full Committee Markup and Report of the FY2005Bill (S. 2666). During markup, the Senate Committee on Appropriationsadopted a manager's amendment offered by Senator Ben Nighthorse Campbell, chairman ofthe Subcommittee on Legislative Branch. Among its provisions were those to:

express the Committee's support of a John Brademas Center for theStudy of Congress at New York University to enhance understanding of federal policymaking(included in Library of Congress report language) (on behalf of Senator RichardDurbin);

express failure of the Committee to support House-passed language directing the GAO to study the statutory responsibilities of the joint economic and taxationcommittees (included in Joint Economic Committee report language) (on behalf of SenatorRobert Bennett);

direct the LOC to make $500,000 available (by means of a grant) to the Middle Eastern Text Initiative for translation and publishing activities (on behalf ofBennett);

add language on electronic services handled by the Senate Sergeant at Arms (on behalf of Hon. Ted Stevens);

provide authority to the U.S. Capitol Police to assist congressional delegations traveling overseas by offering advice on security and assisting in advance securityliaison preparations (on behalf of Campbell);

commend the LOC on its Lewis and Clark exhibit and direct the LOC to support the exhibit as it travels in the United States (included in Library of Congress reportlanguage) (on behalf of Honorable Byron Dorgan);

extend authorization of the National Film Preservation Program in the Library of Congress through FY2005 (offered since House and Senate authorization bills forthe program are still pending) (on behalf of Campbell); and,

direct the Librarian of Congress to provide an update of the Library's efforts to handle security related issues, to identify major security problems andvulnerabilities, and to provide the committee a report on the Library's efforts to enhance thesecurity of its collections (included in LOC report language) (on behalf ofCampbell).

No other amendments were considered. Later that day, the committee reported S. 2666 ( S.Rept. 108-307 ).

Senate Passage of FY2005 Bill (H.R. 4755, Amended to Contain S. 2666). The Senate agreed to the full Committee's totalappropriation of $2.46 million on September 21, by a vote of 94-2. The Senate passed H.R. 4755 , amended to contain the language of S. 2666 , leavingintact language in H.R. 4755 funding internal activities of the House. Beforeamending and passing H.R. 4755, the Senate agreed by unanimous consent to four managers'amendments to S. 2666 which:

revised language in S. 2666 authorizing the chief of the Capitol Police to receive and submit tort claims of Senators and Senate officers and employees against theCapitol Police to the Committee on Rules and Administration. Original language containedthe phrase "With respect to claims within the jurisdiction of theSenate";

revised language in S. 2666 authorizing the Capitol Police Board to make regulations regarding the release of security information subject to approval of theSenate Committee on Rules and Administration and the Committee on House Administration. Original language required approval of the Senate and House Committees on Appropriations;

added an administrative provision within the Open World Leadership Center Trust Fund account to expand the program to other countries as designed by theCenter's Board of Trustees; required the Board to notify the Senate and House Committeeson Appropriations of a designation at least 90 days before the designation takes effect;and

added a new general provision at the end of the bill appropriating $495,000 for the Commission on the Abraham Lincoln Study Abroad Fellowship Program,extending the program to December 31, 2005, and reducing by $495,000 the generaladministration account of the Architect of the Capitol.

Conference Report on FY2005 Bill. The FY2005 legislative branch appropriations bill was contained in the conference report on H.R. 4818 , a consolidated appropriations bill. Eight other unfinishedappropriations bills were also part of H.R. 4818. As agreed to in conference on November19, and subsequently by both houses the following day, legislative branch report languagecontained

an overall increase of 1.2%, to $3.571 billion from $3.527 billion, subject to a 0.80% rescission; (16)

an increase of 5.7% in budget authority for the Capitol Police, to $232.3 million (from $219.8 million), which enables the force to maintain 1,592 sworn staff;and

a decrease of 12.5% ($50.3 million) in budget authority for the Architect of the Capitol, to $352.7 million from $403 million.

FY2005 Legislative Branch Funding Issues

Capitol Complex Security -- U.S. Capitol Police

Funding Issues. Congress approved $232.3 million in FY2005 budget authority for the Capitol Police, an overall increase of $12.5 million(+5.7%), from the previous year's budget authority of $219.8 million. The agency's requestwas a $71.9 million (+32.7) increase to $291.6 million. (17) Appropriations are contained intwo accounts:

salaries account containing $203.4 million, a $7.0 million (+3.6%) increase; and

general expenses account containing $28.9 million, a $5.5 million(23.7%) increase.

A second appropriation relating to the Capitol Police appears within the Architect of the Capitol account for Capitol Police buildings and grounds. That funding level is $5.9 million,a reduction from the request of $40.3 million.

Note: Details of conference report language regarding the Capitol Police will be included in the next version of this report.

Capitol Complex Security -- Capitol Visitors' Center

Conferees on the FY2005 bill agreed to authorize the transfer of up to $10.6 million to the Capitol Visitors' Center (CVC) from the Capitol Building account of the Architect of theCapitol. Conferees allotted $6 million for CVC facility maintenance and $3.3 million forCVC start-up operations.

Earlier, on July 12, the House passed H.R. 4755 , its version of the FY2005 legislative branch funding bill, without funds for the CVC. On September 21, the Senatepassed H.R. 4755, amended to contain the language of S. 2666 , containing $7.6million for maintenance (including equipment, furniture, materials, and supplies), start-upoperations, and new staff. Although the budget request for the CVC did not provideconstruction money, it contained $14.2 million for start-up operations and maintenance. These funds were to cover an interim period during while a decision was made on whichlegislative office would be responsible for the center's operation and maintenance. Therequested funds supported 35 FTE positions.

The CVC request was contained in two appropriations under the Architect of the Capitol. The first provided $6.3 million in the Capitol Building appropriation "to procure equipmentand supplies; to provide training, database management, workflow support services, andinventory systems support; and to support, operate, and maintain the structural, architectural,and utilities infrastructures." The second provided $8.2 million in the CVC appropriation to"cover transitional start-up costs for the operation, administration, and management of guideservices, visitor services, food services, and gift shop services for the CVC." (18)

The FY2005 request followed the FY2004 appropriation of $48.6 million, which reflected a new appropriation of $36.62 million and a transfer to the center's account of $12million. The transfer was made from previously appropriated funds available for CapitolPolice buildings and grounds, also funded within the AOC account.

Interest in construction of the CVC reflects heightened security concerns by some Members of Congress and the desire to make necessary appropriations available so thatconstruction of the center can be completed by the end of 2005. Upon completion offurnishing the CVC and setting up exhibits, the construction barriers will be removed inspring 2006. (19) Congressional leadership brokeground for the center on June 20, 2000, andconstruction began in early 2002.

Architect of the Capitol Operations

Funding Issues. FY2005 funding for the Architect of the Capitol is $352.7 million, a decrease of $50.3 million (-12.5%) from theFY2004 level of $403.0 million. The AOC requested a 45.2% increase, to $584.9 million. Neither the FY2004 appropriation or the FY2005 request reflected one-time appropriationsfor the CVC.

Operations of the Architect are funded in nine accounts. The FY2005 budget authority for these accounts and the percentage changes from FY2004 are:

general administration -- $80.4 million (+4.9% from $76.6 million); request was a 16.5% increase;

Capitol building -- $28.9 million (+3.0% from $28.0 million); requestwas a 15.1% increase;

Capitol grounds -- $7.0 million (+1.9% from $6.9 million); request was an 18.0% increase;

Senate office buildings -- $62.1 million (-1.5% from $63.0 million); request was a 3.6% increase;

House office buildings -- $65.4 million (+4.7% from $62.5 million); request was a 69.2% increase;

Capitol power plant -- $56.8 million (-29.9% from $81.1 million); request was a 21.8% decrease;

Library buildings and grounds -- $40.1 million (+3.0% from $38.9 million); request was a 312.8% increase;

Capitol Police buildings and grounds -- $ 5.9 million (+78.0% from $3.3 million; request was a 1,125.1% increase; and

Botanic garden -- $6.3 million (+2.8% from $6.2 million); request was an 88.3% increase.

House of Representatives

Overall Funding. FY2005 budget authority for House internal operations is $1.05 billion, an increase of $40.1 million (+4.0%), less thanthe requested $1.07 billion, which would have provided a 5.7% increase. The approvedincrease primarily funds mandatory expenses.

House Committee Funding. Funding for House committees is contained in the appropriation heading "committee employees" thatcomprises two subheadings. The first subheading contains funds for personnel andnonpersonnel expenses of House committees, except the Appropriations Committee, asauthorized by the House in a committee expense resolution. The amount approved forFY2005 is $114.3 million, an increase of 11.8% from $102.2 million in FY2004.

The second subheading contains funds for the personnel and nonpersonnel expenses of the Committee on Appropriations, which is $24.9 million, the same level appropriated forFY2004.

Senate

Overall Funding. Congress agreed to $726.1 million for internal Senate programs and activities, a 1.9% increase over the prioryear's funding level of $712.5 million. The Senate requested $758.0 million, an increase of6.4%. Like the House, a significant factor in the request was funding for mandatory expensesrelated to employee insurance and retirement programs.

Among increases are those for

official personnel and office expenses of individual Senators, an increase of 5.3% instead of the requested 10.0% increase; and

salaries of officers and their employees and mandatory Senatecontributions to insurance and retirement programs for most Senate employees, an increaseof 5.1%, the same as requested.

Among decreases in the bill are those for

activities of the Senate Sergeant at Arms funded under "contingent expenses of the Senate," a decrease of 6.0%, instead of the requested 0.6% increase;and

committee funding, a decrease of 7.1%, instead of the requested 1.7%increase.

Senate Committee Funding. Appropriations for Senate committees are contained in two accounts:

the inquiries and investigations account , containing funds for all Senate committees except Appropriations, for which $110.0 million was approved, a 7.1% decreasein lieu of a requested 1.7% increase; and the Committee on Appropriations account , for which$13.3 million was approved, an increase of 3.9%, the same as requested.

Support Agency Funding

Congressional Budget Office. Conferees agreed to $34.9 million, which is $129,000 more than the $34.8 million passed by both theHouse and Senate. The additional amount funds increased agency costs of the employeeretirement system. The conference amount is an increase of $1.3 million (+3.9%) over theprevious year's budget, with the increase covering mandatory pay adjustments and priceincreases.

The agency requested $35.5 million, an increase of $1.8 million (5.5%). (20) Most of therequest ($1.6 million) funded mandatory increases in salaries and related benefits. Thisproposed funding supported 235 FTE positions, the same as for FY2004; a 3.5%across-the-board pay adjustment for staff earning $100,000 or less; and funding forpromotions and merit adjustments for all staff, including those earning more than $100,000;completion of the replacement of CBO's budget analysis data system, "the agency's primarybudget-tracking system, with a lower-cost, more-capable in-house system;" (21) andtelecommunications services related to an alternative computing facility. (22)

Government Accountability Office. The agency, formerly named the General Accounting Office (GAO), received $471 million inFY2005 funding, an increase of $13.4 million (+2.9%). Earlier, the House approved $473.5million, and the Senate, $470 million. As with other legislative agencies, the increaseprimarily was to meet increased expenses of mandatory pay and services adjustments.

Conferees also

withdrew the House provision that the Government Accountability Office report on statutory responsibilities of the Congressional Budget Office, theCongressional Research Service, the Joint Economic Committee, and the Joint Committee onTaxation;

supported language in the Senate report directing GAO to secure congressional leadership support before undertaking future technology assessments anddirecting the Comptroller General to consult with the Senate Appropriations Committeeregarding guidelines to be used in technology assessments; and,

supported Senate report language directing GAO to obtain the necessary equipment for testing and evaluation of the agency's ability to detect threats of chemical,biological, and explosive agents.

The FY2005 request of $486.7 million reflected a direct appropriation of $480.5 millionand authority to use $6.1 million in revenues from "reimbursable audit work and rentalincome." (23) The new budget authority request wasa 5.0% increase over FY2004.

Based on a congressional directive to the agency to undertake technology assessments, GAO requested $545,000 for four new FTE positions and contract support to establish "abaseline technology assessment capability," allowing GAO to conduct one assessment peryear.

During Senate Appropriations Committee testimony, the comptroller general (GAO head) noted that his FY2005 budget supported an authorized staff level of 3,269 FTEs.

Library of Congress. Conferees agreed to $549.8 million for the Library of Congress (LOC), including the Congressional ResearchService, an increase of $26.8 million (+5.1). The House and Senate previously agreed to$543.5 million and $544.1 million, respectively. Conferees also authorized two FTE positionsin the Office of Inspector General to assist in information technology security audits, andreduced the number of FTEs by three.

LOC requested an appropriation of $562.6 million, an increase of $39.6 million (7.6%) from the FY2004 appropriation of $523.0 million. (24) In addition, the Librarian of Congressrequested authority to use $39.7 million from receipts.

According to the Librarian, the request reflected the Library's priorities to initiate operations of the National Audio Visual Conservation Center; to support the CopyrightOffice's reengineering efforts; to "regain full funding for the Congressional Research Servicestaff capacity at 729 full-time-equivalent (FTE) positions;" to support conversion to digitaltalking book technology for the blind and physically handicapped; to fund a massdeacidification program; to support the Veterans History Program; to insure additionalsystems, staff, buildings, and collections security; and to provide infrastructure support. (25)

LOC's request supported 4,363 FTE positions (including CRS), an increase of 80 from FY2004, primarily to meet collections, security, and management needs.

Congressional Research Service. Both houses agreed to $96.9 million for the Congressional Research Service, an increase of $5.7million (+6.3%), covering mandatory pay and retirement costs and increased expenses of goods and services. Earlier, the House approved $96.4 million, and the Senate agreed to $96.7million.

The agency's request of $100.9 million contained $4.3 million for mandatory pay and price level increases, and $5.4 million to support, among other functions, a staff level of 729FTE positions, off-site computer back-up facilities ($622,000), (26) improvements in theLegislative Information System (LIS) ($549,000), (27) and procurement of research materials ($1million). (28) A request of $412,000 funded a pilotprogram for repayment of higher educationloans in an effort to retain staff.

The CRS director noted during hearings on the agency's FY2005 budget that without an additional one-time $2.71 million appropriation, the CRS budget base would support 704 FTEpositions. This translated to a reduction of 25 FTE positions, attained through attrition withoutreplacements. (29)

Government Printing Office. Conferees agreed to $120.8 million for the agency, a reduction of $14 million (-10.4%). The Houseearlier agreed to $121.3 million, and the Senate to $120.7 million. The agency's request wasa 12.1% increase.

The current appropriation, contained in two accounts: congressional printing andbinding and Office of Superintendent of Documents (salaries and expenses), follows:

Congressional printing and binding -- $88.8 million, a decrease of $1.8 million (-2.0%) over the FY2004 appropriation of $90.6 million; and,

Office of Superintendent of Documents (salaries and expenses) -- $32.0million, a decrease of $2.3 million (-6.7%) from $34.3 million.

Conferees agreed to a FTE limit of 2,621, proposed by the Senate, in lieu of 2,889 proposed by the House; expressed support for public access to Federal Depository Libraries;and revised the price discount on GPO publications.

The agency's FY2005 request contained funds in two additional accounts: (1) the Office of Inspector General -- $4.2 million (a new account in FY2005); and (2)

Government Printing Office Revolving Fund -- $25.0 million, an increase of $15.1 million,or 151.5%. The public printer requested that the Office of Inspector General be fundeddirectly, not through the revolving fund, and that appropriations to the revolving fund allowimplementation of "a multi-year plan to transform the information technology used at theGPO" to meet "Federal agency customer requirements for printed and digital documents" and"the public's increasing demand for authenticated, official government information to beavailable from the Internet." (30)

Among legislative changes requested by GPO were those to extend incentives for early retirement and separation (current provisions expire September 30, 2004); authorize $500,000for contracts of "expert services to assist us in our effort to relocate the GPO and to financethis project through redevelopment of our existing structures;" and authorize GPO to acceptcontributions of property, equipment, and services.

Table 3. Legislative Branch Appropriations, FY2005 (H.R. 4818, P.L. 108-447 , Omnibus AppropriationsAct) (in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)

Source: House Committee on Appropriations and Senate Committee on Appropriations (the latter for FY2005 request for Senate activities andFY2005 Senate bill as reported. Table contains budget amendments of May 6, 2004, to the FY2005 budget requestfor an additional $2.7 millionin net discretionary resources, including funds for the Senate ($1.7 million), Joint Economic Committee ($4,000),Capitol Guide Service andSpecial Services Office ($5,000), Library of Congress Copyright Office ($810,000), and Congressional ResearchService ($200,000).

a. FY2004 funds are contained in P.L. 108-83 , FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not containappropriations were contained in P.L. 108-199 , the FY2004 Consolidated Appropriations Act.

b. This is a new account, effective with the FY2003 Legislative Branch Appropriation Act. Previously,Capitol Police funds were contained underthe joint items account.

c. The center was named the Russian Leadership Program prior to FY2004.

d. The House does not consider appropriations for internal Senate operations.

e. The House does not consider appropriations for Senate office buildings contained in the budget of theArchitect of the Capitol.

f. This figure does not contain funds for internal Senate operations, which are funded in a separateaccount, or for Senate office buildings, whichare contained in the budget of the Architect of the Capitol. The Senate determines funding levels of these twoaccounts.

g. The Senate does not consider appropriations for internal House operations.

h. In addition, the Senate Committee on Appropriations directed that $12.815 million of prior-year funds bemade available "to support personnelrequirements" ( S.Rept. 108-307 , 108th Cong.).

i. The Senate does not consider appropriations for House office buildings contained in the budget of theArchitect of the Capitol.

j. This figure does not contain funds for internal House operations, which are funded in a separate account,or for House office buildings, whichare contained in the budget of the Architect of the Capitol. The House determines the funding levels of these twoaccounts.

Table 4. Capitol Police Appropriations, FY2005(H.R. 4818, P.L. 108-447 , Omnibus Appropriations Act) (inthousands of dollars; FY2005 conf. figures are subject to a 0.80% rescission)

Source: House and Senate Committees on Appropriations

a. FY2004 funds are contained in P.L. 108-83 , FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions, that did not containappropriations, were contained in P.L. 108-199 , the FY2004 ConsolidatedAppropriations Act.

Table 5. Architect of the Capitol Appropriations,FY2005 (H.R. 4818, P.L. 108-447 , Omnibus AppropriationsAct)

Source: House and Senate Committees on Appropriations

a. FY2004 funds are contained in P.L. 108-83 , FY2004 Legislative Branch Appropriations Act. Additional non-funding provisions were contained in P.L.108-199 , FY2004 Consolidated Appropriations Act.

b. An additional $6.3 million is contained under the Capitol Building appropriation of theArchitect of the Capitol.

c. The House does not consider appropriations for Senate office buildings.

d. This figure does not include appropriations for Senate office buildings.

e. The Senate does not consider appropriations for House office buildings.

f. This figure does not include appropriations for House office buildings.

Table 6. Senate Appropriations, FY2005 (H.R. 4818, P.L.108-447 , Omnibus AppropriationsAct) (in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)

Source: House and Senate Committees on Appropriations.

a. The Senate account contains seven appropriations headings, which are highlighted in bold.

b. FY2004 funds are contained in P.L. 108-83 , FY2004 Legislative Branch Appropriations Act.Additional FY2004 provisions that did notcontain appropriations were contained in P.L. 108-199 , the FY2004 Consolidated Appropriations Act.

c. Office operations of the Office of the Secretary of the Senate are also funded under "Salaries,Officers, and Employees."

d. Activities of the Office of Sergeant at Arms and Doorkeeper are also funded under "Salaries,Officers, and Employees."

e. This figure reflects a 0.59% rescission of $4.281 million from the appropriation of $310 million.

Table 7. House of Representatives Appropriations, FY2005 (H.R.4755; H.R. 4818, Division G of P.L.108-447 , Omnibus Appropriations Act) (in thousands of dollars; FY2005 figures are subject to a 0.80%rescission)

Sources : House Committee on Appropriations.

a. The appropriations bill contains two House accounts: (1) payments to widows and heirs of deceased Members of Congress and (2)salaries and expenses.

b. FY2004 funds are contained in P.L. 108-83 , FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions thatdid not contain appropriations were contained in P.L. 108-199 , the FY2004 Consolidated Appropriations Act.

c. This appropriation heading was new in the FY1996 bill. The heading represents aconsolidation of: (1) the former headingMembers' clerk hire; (2) the former heading official mail costs; and (3) the former subheading official expenses ofMembers,under the heading allowances and expenses.

d. This appropriation heading was new in the FY1996 bill. The heading represents aconsolidation of: (1) the former headingcommittee employees; (2) the former heading standing committees, special and select; (3) the former headingCommittee onBudget (studies); and (4) the former heading Committee on Appropriations (studies and investigations).

For Additional Reading

CRS Reports

CRS Report RL31812 . Legislative Branch Appropriations for FY2004 , by Paul Dwyer.

CRS Report RL31312 . Legislative Branch Appropriations for FY2003 , by Paul Dwyer.

Selected Websites

These sites contain information on the FY2003 and FY2004 legislative branch appropriations requests and legislation, and the appropriations process.

House Committee on Appropriations http://appropriations.house.gov/

Senate Committee on Appropriations http://appropriations.senate.gov/

CRS Appropriations Products Guide http://www.crs.gov/products/appropriations/apppage.shtml

Congressional Budget Office http://www.cbo.gov

General Accounting Office http://www.gao.gov

Office of Management & Budget http://www.whitehouse.gov/omb/