Labor, Health and Human Services, and Education: FY2009 Appropriations

Labor, Health and Human Services,
and Education: FY2009 Appropriations
July 11, 2008
Pamela W. Smith, Coordinator,
Gerald Mayer, and Rebecca R. Skinner
Domestic Social Policy Division



The annual consideration of appropriations bills (regular, continuing, and supplemental) by
Congress is part of a complex set of budget processes that also encompasses the
consideration of budget resolutions, revenue and debt-limit legislation, other spending
measures, and reconciliation bills. In addition, the operation of programs and the spending
of appropriated funds are subject to constraints established in authorizing statutes.
Congressional action on the budget for a fiscal year usually begins following the submission
of the President’s budget at the beginning of each annual session of Congress.
Congressional practices governing the consideration of appropriations and other budgetary
measures are rooted in the Constitution, the standing rules of the House and Senate, and
statutes, such as the Congressional Budget and Impoundment Control Act of 1974.
This report is a guide to one of the regular appropriations bills that Congress considers each
year. It is designed to supplement the information provided by the House and Senate
Appropriations Subcommittees on Labor, Health and Human Services, Education, and
Related Agencies. It summarizes the status of the bill, its scope, major issues, funding
levels, and related congressional activity, and is updated as events warrant. The report lists
the key CRS staff relevant to the issues covered and related CRS products.
NOTE: A Web version of this document with active links is
available to congressional staff at [http://apps.crs.gov/cli/cli.aspx?
P RDS_CLI_ITEM_ID=2347& f r om=3&f romId=73].



Labor, Health and Human Services, and Education:
FY2009 Appropriations
Summary
This report tracks FY2009 appropriations for the Departments of Labor, Health
and Human Services, Education, and Related Agencies (L-HHS-ED). This
legislation provides discretionary funds for three major federal departments and 14
related agencies. The report, which will be updated, summarizes L-HHS-ED
discretionary funding issues but not authorization or entitlement issues.
On February 4, 2008, the President submitted the FY2009 budget request to
Congress, including $146.5 billion in discretionary L-HHS-ED funds. The
comparable FY2008 amount was $148.4 billion, enacted through the Consolidated
Appropriations Act, 2008 (P.L. 110-161), signed into law on December 26, 2007.
Department of Labor (DOL). DOL discretionary appropriations were $11.7
billion for FY2008. The President requested $10.5 billion for FY2009. The
Administration’s request would reduce funding for Workforce Investment Act (WIA)
programs by $553 million, eliminate $703 million in funding for Employment
Service grants to states, and increase funding for state Unemployment Compensation
operations by $172 million.
Department of Health and Human Services (HHS). HHS discretionary
appropriations were $65.5 billion in FY2008; $63.8 billion was requested for
FY2009. Funding would be increased by $667 million for the Public Health and
Social Services Emergency Fund, by $198 million and $156 million for two
Medicare/Medicaid management activities, and by $149 million for Head Start.
Decreases of $112 million for Rural Health Programs, $126 million for Mental
Health, and $570 million for the Low-Income Home Energy Assistance Program
were requested. Programs proposed for elimination include non-nursing Health
Professions programs, Children’s Hospitals Graduate Medical Education, Health
Care-Related Facilities and Activities, and the Community Services Block Grant.
Department of Education (ED). ED discretionary appropriations were $59.2
billion in FY2008; $60.1 billion was requested for FY2009. Funding would be
increased for Elementary and Secondary Education Act (ESEA) programs by $125
million in the aggregate, and six new education programs, including $300 million for
Pell Grants for Kids, were proposed. Increases of $406 million for Title I, Part A,
Grants to Local Educational Agencies; $607 million for Reading First State Grants;
and $337 million for Special Education Part B Grants to States were requested.
Funding would be eliminated for the $267 million Educational Technology State
Grants program, $1.3 billion Perkins Career and Technical Education program, and
$757 million Federal Supplemental Opportunity Grants program.
Related Agencies. Discretionary appropriations for L-HHS-ED related
agencies were $12.0 billion for FY2008; $12.1 billion was requested for FY2009.
The Administration would eliminate two-year advance funding for the Corporation
for Public Broadcasting (CPB) and increase funding for Social Security
Administration (SSA) administrative expenses by $582 million (to $10.3 billion).



CRS Key Policy Staff for L-HHS-ED Appropriations
Area of ExpertiseNamePhone E-mail
L-HHS-ED Appropriations CoordinatorPamela W. Smith7-7048psmith@crs.loc.gov
Department of Labor (DOL)
DOL appropriations coordinatorGerald Mayer7-7815gmayer@crs.loc.gov
Job training and employment servicesBlake Alan Naughton7-0376bnaughton@crs.loc.gov
Labor market informationLinda Levine7-7756llevine@crs.loc.gov
Wage and hour standardsGerald Mayer7-7815gmayer@crs.loc.gov
Mine Safety and Health AdministrationLinda Levine7-7756llevine@crs.loc.gov
Occupational Safety and Health Admin.Linda Levine7-7756llevine@crs.loc.gov
Office of Workers Compensation ProgramsScott Szymendera7-0014sszymendera@crs.loc.gov
Older Americans Act, employmentAngela Napili7-0135anapili@crs.loc.gov
programsKirsten Colello7-7839kcolello@crs.loc.gov
Pension and welfare benefitsPatrick Purcell7-7571ppurcell@crs.loc.gov
John Topoleski7-2290jtopoleski@crs.loc.gov
Trade adjustment assistanceJohn Topoleski7-2290jtopoleski@crs.loc.gov
Unemployment compensationJulie M. Whittaker7-2587jwhittaker@crs.loc.gov
Veterans employmentChristine Scott7-7366cscott@crs.loc.gov
Workforce Investment ActBlake Alan Naughton7-0376bnaughton@crs.loc.gov
Department of Health and Human Services (HHS)
HHS appropriations coordinatorPamela W. Smith7-7048psmith@crs.loc.gov
Abortion, legal issuesKaren J. Lewis7-6190klewis@crs.loc.gov
Jon Shimabukuro7-7990jshimabukuro@crs.loc.gov
Abortion proceduresJudith A. Johnson7-7077jajohnson@crs.loc.gov
Agency for Healthcare Res. & Qual. (AHRQ)Andrew R. Sommers7-4624asommers@crs.loc.gov
AIDS, Ryan White programsJudith A. Johnson7-7077jajohnson@crs.loc.gov
Bioterrorism, HHS fundingSarah Lister7-7320slister@crs.loc.gov
Cancer researchJudith A. Johnson7-7077jajohnson@crs.loc.gov
Centers for Disease Control and PreventionSarah A. Lister7-7320slister@crs.loc.gov
Chafee Foster Care Independence ProgramAdrienne L. Fernandes7-9005afernandes@crs.loc.gov
Child abuse and neglect, child welfareEmilie Stoltzfus7-2324estoltzfus@crs.loc.gov
Child care and developmentMelinda Gish7-4618mgish@crs.loc.gov
Developmental Disabilities ActAndrew R. Sommers7-4624asommers@crs.loc.gov
Domestic violenceGarrine Laney7-2518glaney@crs.loc.gov
Family Planning, Title XAngela Napili7-0135anapili@crs.loc.gov
Federal health centersBarbara English7-1927benglish@crs.loc.gov
Foster care and adoptionEmilie Stoltzfus7-2324estoltzfus@crs.loc.gov
Head StartMelinda Gish7-4618mgish@crs.loc.gov
Health professions education and trainingBernice Reyes-Akinbileje7-2260breyes@crs.loc.gov
Health Resources and Services Admin.Bernice Reyes-Akinbileje7-2260breyes@crs.loc.gov
ImmunizationPamela W. Smith7-7048psmith@crs.loc.gov
Low-Income Home Energy Assistance Prog.Libby Perl7-7806eperl@crs.loc.gov
Maternal and child health, generalRamya Sundararaman7-7285rsundararaman@crs.loc.gov
Maternal and Child Health Block GrantAngela Napili7-0135anapili@crs.loc.gov
MedicaidElicia J. Herz7-1377eherz@crs.loc.gov
MedicareHolly Sue Stockdale7-9553hstockdale@crs.loc.gov
Mentoring programs for vulnerable youthAdrienne L. Fernandes 7-9005 afernandes@crs.loc.gov
Needle exchange, AIDSRamya Sundararaman7-7285rsundararaman@crs.loc.gov
NIH, health research policyPamela W. Smith7-7048psmith@crs.loc.gov
Older Americans ActAngela Napili7-0135anapili@crs.loc.gov



Area of ExpertiseNamePhone E-mail
Pandemic influenza/bird fluSarah A. Lister7-7320slister@crs.loc.gov
Public Health ServicePamela W. Smith7-7048psmith@crs.loc.gov
Randolph-Sheppard ActAndrew R. Sommers7-4624asommers@crs.loc.gov
Refugee Resettlement AssistanceAndorra Bruno7-7865abruno@crs.loc.gov
Runaway and Homeless Youth ActAdrienne L. Fernandes7-9005afernandes@crs.loc.gov
Social Services Block GrantMelinda Gish7-4618mgish@crs.loc.gov
State Childrens Health Insur. Prog. (SCHIP)Evelyne P. Baumrucker7-8913ebaumrucker@crs.loc.gov
Stem cell research, cloningJudith A. Johnson7-7077jajohnson@crs.loc.gov
Erin D. Williams7-4897ewilliams@crs.loc.gov
Substance Abuse & Mental Health ServicesRamya Sundararaman7-7285rsundararaman@crs.loc.gov
Temp. Assistance for Needy Families (TANF)Gene Falk7-7344gfalk@crs.loc.gov
Department of Education (ED)
ED appropriations coordinatorRebecca R. Skinner7-6600rskinner@crs.loc.gov
Adult education and literacyGail McCallion7-7758gmccallion@crs.loc.gov
After-school programsGail McCallion7-7758gmccallion@crs.loc.gov
Assessment in educationWayne C. Riddle7-7382wriddle@crs.loc.gov
Career (vocational) and technical educationRebecca R. Skinner7-6600rskinner@crs.loc.gov
Charter schoolsRebecca R. Skinner7-6600rskinner@crs.loc.gov
College costs and pricesBlake Alan Naughton7-0376bnaughton@crs.loc.gov
Education block grantsRebecca R. Skinner7-6600rskinner@crs.loc.gov
Education for the Disadvantaged, Title IWayne C. Riddle7-7382wriddle@crs.loc.gov
Education technologyRebecca R. Skinner7-6600rskinner@crs.loc.gov
Elementary and Secondary EducationWayne C. Riddle7-7382wriddle@crs.loc.gov
English language acquisitionRebecca R. Skinner7-6600rskinner@crs.loc.gov
Higher educationDavid Smole7-0624dsmole@crs.loc.gov
Blake Alan Naughton7-0376bnaughton@crs.loc.gov
Impact AidRebecca R. Skinner7-6600rskinner@crs.loc.gov
Indian educationRoger Walke7-8641rwalke@crs.loc.gov
Pell GrantsBlake Alan Naughton7-0376bnaughton@crs.loc.gov
Reading programsGail McCallion7-7758gmccallion@crs.loc.gov
Rehabilitation ActJanet Valluzzi7-9557jvalluzzi@crs.loc.gov
Safe & Drug-Free Schools & CommunitiesGail McCallion7-7758gmccallion@crs.loc.gov
Special education, IDEAAnn Lordeman7-2323alordeman@crs.loc.gov
Special education, IDEA, legal issuesNancy Lee Jones7-6976njones@crs.loc.gov
Student aid/need analysisBlake Alan Naughton7-0376bnaughton@crs.loc.gov
Student loansDavid Smole7-0624dsmole@crs.loc.gov
Teacher recruitment, preparation, & trainingJeffrey J. Kuenzi7-8645jkuenzi@crs.loc.gov
21st Century Community Learning CentersGail McCallion7-7758gmccallion@crs.loc.gov
Related Agencies
Corp. for National & Community ServiceAnn Lordeman7-2323alordeman@crs.loc.gov
(VISTA, Senior Corps, AmeriCorps)Abigail Rudman7-9519arudman@crs.loc.gov
Corporation for Public BroadcastingGlenn J. McLoughlin7-7073gmcloughlin@crs.loc.gov
Institute of Museum and Library ServicesGail McCallion7-7758gmccallion@crs.loc.gov
National Labor Relations BoardGerald Mayer7-7815gmayer@crs.loc.gov
Natl Labor Relations Board, legal issuesJon O. Shimabukuro7-7990jshimabukuro@crs.loc.gov
Social Security Administration,Dawn Nuschler7-6283dnuschler@crs.loc.gov
administrative expensesGary Sidor7-2588gsidor@crs.loc.gov
Supplemental Security Income (SSI)Scott Szymendera7-0014sszymendera@crs.loc.gov



Contents
Most Recent Developments..........................................1
Senate Bill S. 3230 Reported.................................1
House Full Committee Markup...............................1
House Subcommittee Markup................................1
President’s Budget Submitted................................1
Note on Most Recent Data...................................2
Overview and Key Issues............................................2
Discretionary and Mandatory Funding: Program Level and
Current Year Appropriations.................................3
Discretionary Funding Trends, FY2002-FY2008.....................5
Discretionary Appropriations by Bill Title, FY2008-FY2009...........5
Major Discretionary Programs, FY2008-FY2009....................6
FY2009 Appropriations: President’s Request.......................7
302(a) and 302(b) Allocation Ceilings..............................9
Advance Appropriations.......................................10
Department of Labor..............................................12
Key Issues..................................................12
President’s Request.......................................12
CRS Products................................................13
Websites ....................................................13
Detailed Appropriations Table...................................14
Department of Health and Human Services.............................16
Key Issues..................................................16
President’s Request.......................................16
Abortion: Funding Restrictions..............................17
Embryonic Stem Cell Research: Funding Restrictions............18
CRS Products................................................18
Websites ....................................................19
Detailed Appropriations Table...................................20
Department of Education...........................................22
Key Issues..................................................22
President’s Request.......................................22
ESEA Funding Shortfall?..................................24
IDEA Funding Shortfall?...................................25
Forward Funding and Advance Appropriations..................25
CRS Products................................................26
Websites ....................................................27
Detailed Appropriations Table...................................27
Related Agencies.................................................30
Key Issues..................................................30
President’s Request.......................................30



CRS Products................................................31
Websites ....................................................31
Detailed Appropriations Table...................................32
Appendix A. Terminology and Web Resources.........................34
Websites ....................................................35
List of Tables
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2009..........1
Table 2. L-HHS-ED Appropriations Summary, FY2008-FY2009...........4
Table 3. Discretionary Funding Trends, FY2002-FY2008..................5
Table 4. L-HHS-ED Discretionary Funding by Bill Title, FY2008-FY2009....6
Table 5. Major Discretionary Programs, FY2008-FY2009.................7
Table 6. FY2009 302(b) Discretionary Allocations for L-HHS-ED.........10
Table 7. Department of Labor Discretionary Appropriations...............12
Table 8. Detailed Department of Labor Appropriations...................14
Table 9. Department of Health and Human Services Discretionary
Appropriations ...............................................16
Table 10. Detailed Department of Health and Human Services
Appropriations ...............................................20
Table 11. Department of Education Discretionary Appropriations..........22
Table 12. Detailed Department of Education Appropriations..............27
Table 13. Related Agencies Discretionary Appropriations.................30
Table 14. Detailed Related Agencies Appropriations.....................32



Labor, Health and Human Services,
and Education: FY2009 Appropriations
Most Recent Developments
Senate Bill S. 3230 Reported. On July 8, 2008, the Senate Committee on
Appropriations reported S. 3230 (S.Rept. 110-410), its proposal for FY2009
appropriations for the Departments of Labor, Health and Human Services, Education,
and Related Agencies (L-HHS-ED). The bill would provide $155.7 billion in
discretionary funds for L-HHS-ED. Provisions of the bill as reported will be covered
in the next update to this report.
House Full Committee Markup. The House Committee on Appropriations
convened a markup session on its draft bill on June 26, 2008, but adjourned before
final action.
House Subcommittee Markup. On June 19, 2008, the House L-HHS-ED
Appropriations Subcommittee marked up its draft bill and approved it for
consideration by the full committee.
President’s Budget Submitted. On February 4, 2008, the President
submitted the FY2009 budget to Congress; the request was for $146.5 billion in
discretionary funds for L-HHS-ED programs. Subsequent amendments to the request
are not yet reflected in this report.
Table 1 summarizes the legislative status of FY2009 L-HHS-ED appropriations.
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2009
Subco mmit t e e Conference
MarkupHouseHouseSenate SenateConf.Report ApprovalPublic
CommitteePassageCommitteePassageReport LawHouseSenate
House Senate Passage Passage
7/8/08c
6/19/08a6/24/08bS. 3230,S.Rept.
110-410
a. The House Subcommittee on Labor, Health and Human Services, Education, and Related Agencies Appropriations began
FY2009 hearings on Feb. 13, 2008. The Subcommittee marked up its version of the FY2009 L-HHS-ED
appropriations on June 19, 2008, approving it by a voice vote.
b. The Senate Subcommittee on Labor, Health and Human Services, Education, and Related Agencies Appropriations began
FY2009 hearings on May 7, 2008. The Subcommittee marked up its version of the FY2009 L-HHS-ED bill on June
24, 2008, and approved it by voice vote.
c. S. 3230: The Senate Committee on Appropriations approved the draft L-HHS-ED bill, amended, on June 26, 2008, by a
vote of 26 to 3, and ordered the bill reported. Subsequently, S. 3230 (S.Rept. 110-410) was introduced and reported
on July 8, 2008.



Note on Most Recent Data. In this report, unless stated otherwise, data on
FY2008 appropriations and FY2009 appropriations proposals are based on the April
14, 2008, table of the House Committee on Appropriations. In most cases, data
represent net funding for specific programs and activities, and take into account
current and forward funding and advance appropriations; however, all data are
subject to additional budgetary scorekeeping. Except where noted, data refer only
to those programs within the purview of L-HHS-ED appropriations, and not to all
programs within the jurisdiction of the relevant departments and agencies. Funding
from other appropriations bills, and entitlements funded outside of the annual
appropriations process, are excluded.
The FY2008 data reflect the funding provided under the terms of the
Consolidated Appropriations Act, 2008 (P.L. 110-161, H.R. 2764), which was signed
into law on December 26, 2007. A series of four continuing resolutions (CRs),
beginning with P.L. 110-92, had provided temporary L-HHS-ED funding from
October 1, 2007, through December 26, 2007. Division G of the act provided
funding for L-HHS-ED programs. Subsequently, Congress passed the Supplemental
Appropriations Act, 2008, P.L. 110-252, signed into law on June 30, 2008. The law
had a few provisions that affected FY2008 funding levels for some L-HHS-ED
agencies. FY2008 figures in this report do not take account of those changes.
For additional information, please see CRS Report RL30343, Continuing
Resolutions: FY2008 Action and Brief Overview of Recent Practices, by Sandy
Streeter, and CRS Report RL34451, Second FY2008 Supplemental Appropriations
for Military Operations, International Affairs, and Other Purposes, by Stephen
Daggett et al.
Overview and Key Issues
This report describes the President’s proposal for FY2009 appropriations for
L-HHS-ED programs, as submitted to Congress on February 4, 2008; subsequent
updates will also describe the congressional response to that proposal. It compares
the President’s FY2009 request to the FY2008 L-HHS-ED amounts. The report is
designed to track legislative action and congressional issues related to the L-HHS-ED
appropriations bill, with particular attention paid to discretionary programs.
However, the report does not follow specific funding issues related to mandatory
L-HHS-ED programs — such as Medicare or Social Security — nor does it follow
any authorizing legislation that may be needed prior to funding some of the
President’s budget initiatives. For a glossary of budget terms and relevant websites,
see Appendix A, “Terminology and Web Resources.”
The L-HHS-ED bill typically is one of the more controversial of the regular
appropriations bills, not only because of the size of its funding total and the scope of
its programs, but also because of the continuing importance of various related issues,
such as restrictions on the use of federal funds for abortion and stem cell research.
This bill provides discretionary and mandatory funds to three federal departments and

14 related agencies, including the Social Security Administration (SSA).


Discretionary funding represents only one-quarter of the total in the bill.



Among the various appropriations bills, L-HHS-ED is the largest single source
of discretionary funds for domestic (non-defense) federal programs (the Department
of Defense bill is the largest source of discretionary funds among all federal
programs). This section presents several overview tables on funding in the bill,
particularly discretionary funding; summarizes major funding changes proposed for
L-HHS-ED; and discusses related issues such as 302(b) allocations and advance
appropriations. Later sections provide details on individual L-HHS-ED departments
and agencies.
Discretionary and Mandatory Funding:
Program Level and Current Year Appropriations
Table 2 summarizes the L-HHS-ED appropriations enacted for FY2008 and
proposed for FY2009, including both discretionary and mandatory appropriations.
The table shows various aggregate measures of L-HHS-ED appropriations, including
the discretionary program level, current year level, and advance appropriations, as
well as scorekeeping adjustments.
!Program level discretionary appropriations reflect the total
discretionary appropriations in a given bill, regardless of the year in
which they will be spent, and therefore include advance funding for
future years. Unless otherwise specified, appropriations levels in this
report refer to program level amounts.
!Current year discretionary appropriations represent discretionary
appropriations in a given bill for the current year, plus discretionary
appropriations for the current year that were enacted in prior years
— for example, FY2008 appropriations that were enacted in the
FY2007 act. As the annual congressional appropriations process
unfolds, current year discretionary appropriations, including
scorekeeping adjustments (see below), are measured against the
302(b) allocation ceilings (discussed later in this report). Note that
media reports and comments from the Administration about
appropriations activities typically cite figures representing the
current year discretionary totals rather than the program levels in the
bill.
!Advance appropriations are funds that will not become available
until after the fiscal year for which the appropriations are enacted
(for example, funds for certain education programs like Title I Part
A Grants to Local Educational Agencies for the Education of the
Disadvantaged that were included in the FY2007 act that could not
be spent before FY2008 at the earliest, discussed later in this report).
!Scorekeeping adjustments are made to account for special funding
situations, as monitored by the Congressional Budget Office (CBO).
Because appropriations may consist of mixtures of budget authority enacted in
various years, two summary measures are frequently used: program level
appropriations and current year appropriations. How are these measures related? For
an “operational definition,” program level funding equals (a) current year, plus (b)
advances for future years, minus (c) advances from prior years, and minus



(d) scorekeeping adjustments. Alternatively, current year funding is derived by
taking the program level (total in the bill), subtracting the advances for future years,
adding in the advances from prior years, and applying the scorekeeping adjustments.
Table 2 shows each of these amounts for discretionary funding, along with current
year funding and program level funding for mandatory programs, and the grand total
for L-HHS-ED.
Table 2. L-HHS-ED Appropriations Summary, FY2008-FY2009
($ in billions)
Type of Budget AuthorityFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Discretionary Appropriations
Program level: current bill for 148.4146.5
any year
Current year: current year from 144.9145.4
any bill (after scorekeeping)
Advances for future years (in the 21.320.9
current bill)
Advances from prior years (from 19.221.3
previous bills)
Scorekeeping adjustments -1.4-1.5
Current Year Discretionary and Mandatory Funding
Discretionary (compare to 144.9145.4
302(b) cap)
Mandatory 452.8473.3
Total, current year 597.7618.7
Program Level Totals of Funding for L-HHS-ED Bill, Any Year
Discretionary program level 148.4146.5
Mandatory program level 452.8478.4
Grand total, any year 601.1624.8
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations. Appropriations are given only
for programs included in the annual L-HHS-ED bill.
Note: Details may not add to totals due to rounding. Both FY2008 and FY2009 mandatory amounts
are estimates that are subject to adjustments after the close of their respective fiscal years. All amounts
in the table are subject to change through the enactment of further supplementals and rescissions.



Discretionary Funding Trends, FY2002-FY2008
The L-HHS-ED appropriations bills include both mandatory and discretionary
funds; however, the Appropriations Committees fully control only the discretionary
funds. Mandatory funding levels for programs included in the annual appropriations
bills are modified through changes in the authorizing legislation. Typically, these
changes are accomplished through authorizing committees by means of reconciliation
legislation, and not through appropriations committees in annual appropriations bills.
Table 3 shows the trend in discretionary budget authority enacted in the
L-HHS-ED appropriations for FY2002 through FY2008. During the past seven
years, L-HHS-ED discretionary funds have grown from $127.2 billion in FY2002 to
$148.4 billion in FY2008, an increase of $21.2 billion, or 16.7%. Adjusted for
inflation during this same period, using the Gross Domestic Product (GDP) deflator,
L-HHS-ED discretionary funds in estimated FY2008 dollars dropped from $148.6
billion in FY2002 to $148.4 billion in FY2008, a decrease of $0.2 billion, or 0.1%.
Table 3. Discretionary Funding Trends, FY2002-FY2008
(budget authority in billions of dollars)
Type of FundsFY2002FY2003FY2004FY2005 FY2006FY2007 FY2008
L-HHS-ED127.2132.4139.7143.4141.5144.7 148.4
discretionary
L-HHS-ED
discretionary in 148.6151.6155.9155.1148.1147.5148.4
estimated FY2008
dollars
GDP deflator1.04321.0643 1.09201.12701.16431.19551.2186
(FY2000 = 1.0)
Sources: The GDP deflator is based on the Budget of the United States Government, Historical
Tables, Fiscal Year 2009, Table 10.1. L-HHS-ED totals for FY2002-FY2005 discretionary budget
authority are based on annual conference reports for L-HHS-ED appropriations and, therefore, may
not be completely comparable from year to year. FY2006 L-HHS-ED discretionary total is based on
the April 17, 2007, table of the House Committee on Appropriations; FY2007 total is based on the
December 17, 2007, committee table; FY2008 total is based on the April 14, 2008, committee table,
and does not yet include FY2008 supplemental appropriations.
Discretionary Appropriations by Bill Title, FY2008-FY2009
The annual L-HHS-ED appropriations act typically includes five titles. The first
three provide appropriations and program direction for the Department of Labor
(Title I), the Department of Health and Human Services (Title II), and the
Department of Education (Title III). Each of the three titles includes some sections
of “General Provisions” for the department; they provide specific program directions,
modifications, or restrictions that the appropriators wish to convey in bill language,
not just in report language. Title IV covers funding for 14 related agencies, the
largest of which is the Social Security Administration. Title V contains general
provisions with broader application than those in the department titles. Occasionally,



one or more additional titles are added to the act, which may be legislative
(authorizing) language rather than appropriations provisions. The FY2008 L-HHS-
ED appropriations act (Division G of P.L. 110-161) included a Title VI that provided
for establishment of a National Commission on Children and Disasters.
Table 4 summarizes by title the program level discretionary spending that was
provided for FY2008 and proposed for FY2009 L-HHS-ED appropriations and
compares the program level totals with the current year discretionary totals.
Table 4. L-HHS-ED Discretionary Funding by Bill Title,
FY2008-FY2009
($ in millions)
FY2008 FY2009 FY2009 FY2009 FY2009
Adjusted Request House Sena t e Ena c t e d
Discretionary Appropriations, Program Level (total in bill for any year)
Title I, Department of Labor 11,69310,542
Title II, Department of Health 65,53163,823
and Human Services
Title III, Department of 59,18160,053
Ed ucatio n
Title IV, Related Agencies 11,95712,071
Total discretionary, program 148,363146,489
leve l
Total Discretionary, Current Year from Any Bill (after scorekeeping adjustments)
Total, current year 144,914145,354
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations. Appropriations are given only
for programs included in the annual L-HHS-ED bill. Details may not add to totals due to rounding.
Major Discretionary Programs, FY2008-FY2009
Among the discretionary programs funded in the bill, which are the largest?
Table 5 shows the L-HHS-ED discretionary programs with the highest funding
levels; in both FY2008 and proposals for FY2009, eight programs accounted for at
least 62% of all L-HHS-ED discretionary appropriations. Each of the programs
shown in Table 5 received or is proposed for more than $3.0 billion each year, and
the aggregate funding for this group was $93.3 billion in FY2008 and would be
$97.1 billion under the President’s FY2009 request. As shown in the previous tables,
L-HHS-ED discretionary funding totaled $148.4 billion in FY2008 and $146.5
billion in the FY2009 request.



Table 5. Major Discretionary Programs, FY2008-FY2009
($ in millions)
Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
National Institutes of Health (NIH) 29,23029,230
Pell Grants 14,21516,941
Title I Part A Education for the 13,89914,305
Disadvantaged, Grants to LEAs
IDEA Special Education, Part B 10,94811,285
Grants to States
SSA Total Administrative Expenses 9,74510,327
Head Start 6,8787,027
WIA, all programs 5,1864,633
CMS Program Management 3,1523,307
Major L-HHS-ED subtotal 93,25297,054
Other L-HHS-ED discretionary 55,11149,435
L-HHS-ED discretionary total 148,363146,489
Major programs as a % of total 62.9%66.3%
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations.
Note: LEAs = Local Educational Agencies; IDEA = Individuals with Disabilities Education Act;
WIA = Workforce Investment Act; CMS = Centers for Medicare and Medicaid Services.
FY2009 Appropriations: President’s Request
On February 4, 2008, the President’s FY2009 request was submitted to
Congress. With regard to the President’s budget, the primary issues raised during
congressional consideration of any appropriations request generally relate to
proposed funding changes, as well as to the overall level of support for programs.
The following summary highlights changes of at least $100 million proposed in
FY2009 discretionary budget authority in comparison with the FY2008 amount.
Viewing this list by itself should be done with caution, since the relative impact of
a $100 million funding change to a $500 million program (a 20% increase or
decrease) is greater than a $100 million change to a $5 billion program (a 2%
increase or decrease). Later in this report, the discussion of budgets for individual
departments includes tables to compare the FY2009 request with the FY2008
funding for many of the major programs in the L-HHS-ED bill.
Budget Highlights. Overall, $146.5 billion in discretionary appropriations
were requested for L-HHS-ED for FY2009, $1.9 billion (1.3%) less than the FY2008
amount of $148.4 billion.



!For the Department of Labor (DOL), the Administration’s FY2009
request included a decrease of $553 million for WIA programs, from
$5.2 billion for FY2008 to $4.6 billion for FY2009. The proposed
reduction included $241 million less for Dislocated Worker
Assistance programs (funded at $1.5 billion in FY2008) and $150
million less for Adult Training grants to states (down from $862
million for FY2008). The Administration would decrease funding
for the Community Service Employment for Older Americans
program by $172 million (from $522 million for FY2008). The
President’s request would eliminate $703 million in funding for
Employment Service grants to states, leaving $20 million in funding
for other Employment Service activities. The President’s request
would increase funding for state Unemployment Compensation
operations by $172 million (to $2.6 billion for FY2009). Overall,
the President requested $10.5 billion in discretionary appropriations
for DOL for FY2009, a 9.8% reduction from FY2008 funding of
$11.7 billion.
!For the Department of Health and Human Services (HHS), the
FY2009 request proposed an increase of $667 million for the Public
Health and Social Services Emergency Fund (PHSSEF), covering
homeland security activities and Pandemic Influenza Preparedness.
Health programs proposed for elimination included Health
Professions programs other than those for nursing (funded at $194
million in FY2008), Children’s Hospitals Graduate Medical
Education (CHGME, $302 million in FY2008), and Health Care-
Related Facilities and Activities ($304 million in FY2008).
Decreases were proposed of $112 million for Rural Health Programs
and $126 million for Mental Health. A $198 million initiative for
Fraud and Abuse Control at the Centers for Medicare and Medicaid
Services (CMS) was proposed, along with a $156 million increase
for CMS Program Management. A decrease of $570 million for the
Low-Income Home Energy Assistance Program (LIHEAP) was
proposed, while a $149 million increase for Head Start was
requested. The $654 million Community Services Block Grant
(CSBG) received no funding in the request. Overall, $63.8 billion
in FY2009 discretionary appropriations were requested for HHS,

2.6% less than the FY2008 amount of $65.5 billion.


! For the Department of Education (ED), the President’s FY2009
request would increase funding for the Elementary and Secondary
Education Act of 1965 (ESEA) programs in the aggregate by $125
million. Funding for Title I, Part A, Grants to Local Educational
Agencies (LEAs) for the Education of the Disadvantaged would
increase by $406 million, while funding for Reading First State
Grants would increase by $607 million. Teacher Quality State
Grants would decrease by $100 million. The request included a
proposal for one new K-12 education initiative of at least $100
million — the Pell Grants for Kids program, which would be funded
at $300 million. The request proposes the elimination of the $272



million Educational Technology State Grants program and the $1.3
billion Perkins Career and Technical Education program. Funding
for the 21st Century Community Learning Centers program would be
reduced by $281 million, the Fund for the Improvement of
Education would be decreased by $201 million, and Safe and Drug-
Free Schools State Grants would be reduced by $195 million. The
Teacher Incentive Fund would increase by $103 million. An
increase of $337 million was requested for the Special Education
Part B Grants to States program authorized by the Individuals with
Disabilities Education Act (IDEA). The request also proposes the
elimination of the $757 million Supplemental Educational
Opportunity Grants. Pell Grants would increase by $2.7 billion. Aid
for Institutional Development would decrease by $139 million.
Funding for the Institute for Education Sciences would increase by
$112 million. Overall, $60.1 billion in FY2009 discretionary
appropriations were requested for ED, 1.5% more than the FY2008
amount of $59.2 billion.
! For the related agencies, the Administration’s request for FY2009
would increase funding for SSA administrative expenses by $582
million, from $9.7 billion for FY2008 to $10.3 billion for FY2009.
The Administration’s request would eliminate the two-year advance
funding for the Corporation for Public Broadcasting (CPB) and
rescind $220 million in advance funding for FY2010 (appropriated
in FY2008) and $200 million in advance funding for FY2009
(appropriated in FY2007). Overall, the Administration requested
$12.1 billion in discretionary appropriations for L-HHS-ED related
agencies for FY2009, a 0.9% increase from FY2008 funding of
$12.0 billion.
302(a) and 302(b) Allocation Ceilings
The maximum budget authority for annual L-HHS-ED appropriations is
determined through a two-stage congressional budget process. In the first stage,
Congress establishes the 302(a) allocations — the maximum spending totals for
congressional committees for a given fiscal year. This task is sometimes
accomplished through the concurrent resolution on the budget, where spending totals
are specified through the statement of managers in the conference report. In years
when the House and Senate do not reach a budget agreement, these totals may be set
through leadership arrangements in each chamber. The 302(a) allocations determine
spending totals for each of the various committees, as well as the total discretionary
budget authority available for enactment in annual appropriations through the House
and Senate Committees on Appropriations.
Congress reached agreement on the FY2009 budget resolution i n early June,
2008, when the Senate (June 4) and the House (June 5) agreed to the conference
report (H.Rept. 110-659) accompanying S.Con.Res. 70. The resolution established
a 302(a) discretionary budget allocation of $1,011.7 billion. For the purpose of
comparison, the 302(a) discretionary allocation originally agreed to for FY2008 was



$953.1 billion. (The current FY2008 302(a) allocation, revised to include
emergencies, is $1,050.5 billion.)
In the second stage of the annual congressional budget process, the House and
Senate Committees on Appropriations separately establish the 302(b) allocations —
the maximum discretionary budget authority available to each subcommittee for each
annual appropriations bill. The total of these allocations must not exceed the 302(a)
discretionary total. This process creates the basis for enforcing discretionary budget
discipline, since any appropriations bill reported with a total above the ceiling is
subject to a point of order. The 302(b) allocations can and often do get adjusted
during the year as the various appropriations bills progress toward final enactment.
Table 6 shows the 302(b) discretionary allocations for the FY2009 L-HHS-ED
appropriations determined by the House and Senate Committees on Appropriations.
Comparable amounts for the FY2008 appropriations and the President’s FY2009
budget request are also shown. Both the 302(a) and 302(b) allocations regularly
become contested issues in their own right.
Table 6. FY2009 302(b) Discretionary Allocations for L-HHS-ED
(budget authority in billions of dollars)
FY2008FY2009RequestFY2009HouseFY2009 SenateFY2009
Comparable Comparable Allocation Allocation Enacted
144.8 145.4 152.6 152.7
Sources: The FY2009 House allocation is based on H.Rept. 110-746, July 8, 2008; the FY2009
Senate allocation is based on S.Rept. 110-402, June 25, 2008. The comparable amounts for FY2008
budget authority and the FY2009 budget request are based on the April 14, 2008, table from House
Appropriations Committee.
Advance Appropriations
Advance appropriations occur when funds enacted in one fiscal year are not
available for obligation until a subsequent fiscal year. For example, P.L. 109-149,
which enacted FY2006 L-HHS-ED appropriations, provided $400 million for the
Corporation for Public Broadcasting (CPB) for use in FY2008. Advance
appropriations may be used to meet several objectives. These might include the
provision of long-term budget information to recipients, such as state and local
educational systems, to enable better planning of future program activities and
personnel levels. The more contentious aspect of advance appropriations, however,
involves how they are counted in budget ceilings.
Advance appropriations avoid the 302(a) and 302(b) allocation ceilings for the
current year, but must be counted in the year in which they first become available for
obligation. This procedure uses up ahead of time part of what will be counted against
the allocation ceiling in future years. In FY2002, the President’s budget proposed the
elimination of advance appropriations for federal discretionary programs, including
those for L-HHS-ED programs. Congress rejected that proposal, and the proposal



has not been repeated. For an example of the impact of advance appropriations on
program administration, see the discussion titled “Forward Funding and Advance
Appropriations” in the section on the Department of Education, later in this report.
The FY1999 and FY2000 annual L-HHS-ED appropriations bills provided
significant increases in advance appropriations for discretionary programs, moving
from $4.0 billion in FY1998 to $19.0 billion in FY2000. From FY2001 through
FY2007, advance appropriations generally were provided at $19.3 billion , with the
exceptions of $18.8 billion in FY2001 and $21.5 billion in FY2003. For FY2008,
following his pattern of the previous six years, the President requested $18.9 billion
in discretionary advance appropriations for L-HHS-ED. Congress decided instead
to add $2.0 billion to the previous total, bringing the amount to $21.3 billion. At
that level, advance appropriations accounted for 14.3% of the L-HHS-ED program
level discretionary total of $148.4 billion in FY2008. In terms of current year
funding, advances from previous years, at $19.2 billion, represented 13.3% of the
current year discretionary total of $144.9 billion for FY2008. For FY2009, the
President requested $20.9 billion in advance appropriations for L-HHS-ED.
From FY1998 to the present, advance appropriations included in L-HHS-ED
bills have been as follows:
!FY1998, $4.0 billion;
!FY1999, $8.9 billion;
!FY2000, $19.0 billion;
!FY2001, $18.8 billion;
!FY2002, $19.3 billion;
!FY2003, $21.5 billion;
!FY2004, $19.3 billion;
!FY2005, $19.3 billion;
!FY2006, $19.3 billion;
!FY2007, $19.3 billion;
! FY2008, $21.3 billion.
! FY2009, President’s budget request, $20.9 billion;



Department of Labor
FY2008 discretionary appropriations for the Department of Labor (DOL) were
$11.7 billion. For FY2009, the Administration requested $10.5 billion, or $1.2
billion (9.8%) less than the FY2008 amount, as shown in Table 7.
Table 7. Department of Labor Discretionary Appropriations
($ in billions)
F undi ng F Y 2008Adj u s t e d F Y 2009Request F Y 2009House F Y 2009Senat e F Y 2009Enacted
Appropriations 11.7 10.5
Source: Amounts are based on the April 14, 2008, table of the House Committee on Appropriations.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations.
Mandatory DOL programs included in the L-HHS-ED act were funded at $3.0
billion in FY2008. Mandatory programs consist of the Black Lung Disability Trust
Fund ($1,068 million), Federal Unemployment Benefits and Allowances ($889
million), Advances to the Unemployment Insurance and Other Trust Funds ($437
million), Special Benefits for Disabled Coal Miners ($270 million), Employment
Standards Administration (ESA) Special Benefits ($203 million), and administrative
expenses for the Energy Employees Occupational Illness Compensation Fund ($49
million).
Key Issues
President’s Request. The President’s FY2009 budget request for DOL
would change funding for a number of activities. Proposed discretionary changes of
at least $100 million compared to FY2008 appropriations are as follows:
!The Administration’s budget request would reduce funding for
Workforce Investment Act (WIA) programs by $553 million, from
$5.2 billion for FY2008 to $4.6 billion for FY2009.
!Appropriations for WIA Dislocated Worker Assistance programs,
funded at $1.5 billion in FY2008, would be reduced by $241 million
in FY2008.1
!WIA Adult Training grants to states, funded at $862 million in
FY2008, would be reduced by $150 million.
!Funding for Community Service Employment for Older Americans
would fall $172 million, from $522 million to $350 million.


1 Appropriations for FY2008 set aside $123 million from the Dislocated Worker Assistance
National Reserve program for the Community College initiative. The President requested
$125 million in direct appropriations for Community College grants.

!The President’s request would eliminate $703 million in funding for
Employment Service grants to states, leaving $20 million in funding
for other Employment Service activities. These grants fund a
nationwide system of employment services for job-seekers and
employers. Under the President’s request, these services would be
provided by One-Stop Career Centers.
!The President’s request would increase funding for state
Unemployment Compensation operations by $172 million, from
$2,464 million for FY2008 to $2,636 million for FY2009.
The President’s request would provide $2.8 billion for new individual Career
Advancement Accounts (CAA). To pay for these accounts, the request would
eliminate or reduce funding for WIA Adult, Youth, and Dislocated Worker programs;
the Work Opportunity Tax Credit (WOTC); and workforce information. The
maximum amount of an account would be $3,000 per year.
CRS Products
CRS Report RL33687, The Workforce Investment Act (WIA): Program-by-Program
Overview and Funding of Title I Training Programs, by Blake Alan Naughton.
CRS Report RL33362, Unemployment Insurance: Available Unemployment Benefits
and Legislative Activity, by Julie M. Whittaker.
CRS Report RL34383, Trade Adjustment Assistance (TAA) for Workers: Current
Issues and Legislation, by John J. Topoleski.
CRS Report RS22718, Trade Adjustment Assistance for Workers (TAA) and
Alternative Trade Adjustment Assistance for Older Workers (ATAA), by John
J. Topoleski.
CRS Report RL33754, Minimum Wage in the 110th Congress, by William G.
Whittaker.
Websites
Department of Labor
[ http://www.dol.gov]
[ http://www.dol.gov/dol/aboutdol/main.htm#budget]



Detailed Appropriations Table
Table 8 shows the appropriations details for offices and major programs of
DOL.
Table 8. Detailed Department of Labor Appropriations
($ in millions)
Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Total Workforce Investment Act, Title I 5,1864,633
(WIA) (non-add)
Employment and Training Administration (ETA)
Training and Employment Services (TES)
WIA Adult Training Grants to States 862712
WIA Youth Training 924841
WIA Dislocated Worker Assistance 1,4651,224
(DWA)
DWA State Grants (non-add) 1,184943
DWA National Reserve Communitya 1230
College initiative set aside (non-add)
DWA National Reserve, other (non-a 158281
add)
WIA Migrant and Seasonal 800
Farmwo rkers
WIA Community College Grantsa 0125
(Community-Based Job Training)
Other WIA and TES Activities 246285
TES subtotal 3,5763,061
Community Service Employment for 522350
Older Americans
Federal Unemployment Benefits andb 889959
Allowances (mandatory)
State Unemployment Insurance and Employment Service Operations (SUI/ESO)
Unemployment Compensation 2,4642,636
Employment Service 72320
Employment Service State Grants 7030
(non-add)
Foreign Labor Certification 5478
One-Stop Career Centers 5249
Work Incentives Grants 140
SUI/ESO subtotal 3,3072,783
Advances to Unemployment Trust 437422
Fund and other funds (mandatory)
ETA Program Administration 131144
ETA subtotal 8,8627,719
Employee Benefits Security 139148
Ad mi ni str a tio n
Pension Benefit Guaranty Corporation 427445


(non-add)

Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Employment Standards Administration (ESA)
ESA Salaries and Expenses 421469
Office of Labor-Management 4558
Standards (OLMS) (non-add)
ESA Special Benefits (mandatory) 203163
ESA Special Benefits for Disabled 270244
Coal Miners (mandatory)
ESA Energy Employees Occupational
Illness Compensation Fund (Part Bc 4950
administrative expenses) (mandatory)
ESA Black Lung Disability Trust Fund 1,0681,072
(mandato ry)
ESA subtotal 2,0121,997
Occupational Safety and Health 486502
Administration (OSHA)
Mine Safety and Health 334332
Administration (MSHA)
Bureau of Labor Statistics 545593
Office of Disability Employment 2712
P o licy
Departmental Management
International Labor Affairs 8115
WIA Job Corps 1,6111,565
Veterans Employment and Training 228238
Departmental Management, other 285331
Departmental Management subtotal 2,2052,149
Working Capital Fund 00
TOTALS, DEPARTMENT OF LABOR
Total Appropriationsd 14,60913,452
Current Year Funding 12,08410,933
One-Year Advance Funding 2,5252,519
Source: Amounts are based on the April 14, 2008, table of the House Committee on Appropriations.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations.
a. The WIA community college initiative (i.e., Community-Based Job Training program) was funded
at $123 million in FY2008 from Dislocated Worker Assistance National Reserve funds. The
President’s budget request for FY2009 would provide direct appropriations of $125 million.
To reflect this difference, in Table 8 the program is shown on two lines.
b. Federal Unemployment Benefits and Allowances consist of funding for benefits and training for
workers under the Trade Adjustment Assistance (TAA) program.
c. Before FY2009, appropriations for administrative and statutory activities under the Energy
Employees Occupational Illness Compensation Program Act (EEOICPA) were in DOL, with
some of the funding transferred to the Centers for Disease Control and Prevention (CDC) by
interagency agreement. The FY2009 request proposed direct appropriations (mandatory) to
CDC for the activities.
d. Appropriations totals include discretionary and mandatory spending and may be subject to
additional scorekeeping and other adjustments.



Department of Health and Human Services
FY2008 discretionary appropriations for the Department of Health and Human
Services (HHS) were $65.5 billion. For FY2009, the budget request was $ 63.8
billion, $1.7 billion (2.6%) less than the FY2008 amount, as shown in Table 9.
Table 9. Department of Health and Human Services
Discretionary Appropriations
($ in billions)
F undi ng F Y 2008Adj u s t e d F Y 2009Re que s t F Y 2009House F Y 2009Senat e F Y 2009Enacted
Appropriations 65.5 63.8
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
Amounts represent discretionary spending funded by L-HHS-ED appropriations; funds for mandatory
programs are excluded, as are funds for the Food and Drug Administration (FDA) and the Indian
Health Service (IHS). FDA and IHS are both agencies of HHS, but they are funded through other
appropriations bills.
Mandatory HHS programs included in the L-HHS-ED act were funded at $
408.2 billion in FY2008, and consist primarily of Medicaid Grants to States ( $206.1
billion), Payments to Medicare Trust Funds ($188.4 billion, including both Part B
Supplementary Medical Insurance and Part D Prescription Drugs), Foster Care and
Adoption Assistance State Payments ($6.8 billion), Family Support Payments to
States ( $4.2 billion), and the Social Services Block Grant ($1.7 billion).
Key Issues
President’s Request. The President’s FY2009 budget request for HHS
proposed increased support for the Public Health and Social Services Emergency
Fund (PHSSEF), for Head Start, and for program management and a fraud control
initiative for the administration of Medicare and Medicaid. At the same time, it
proposed level funding for medical research, and overall funding reductions for
health resources and services, disease control and prevention, substance abuse and
prevention, programs for children and families, and services for the aging. Not all
programs in each category were decreased; selected programs in most of the
categories were requested for increases. Requests for major changes are indicated
below.
Discretionary spending changes of at least $100 million were requested in the
President’s FY2009 budget for several HHS programs, as follows.
! Health Professions programs other than those for nursing, funded at
$194 million in FY2008, would be eliminated.
!Children’s Hospitals Graduate Medical Education (CHGME),
funded at $302 million in FY2008, would be eliminated.
!Rural Health Programs, funded at $136 million in FY2008, would
be reduced by $112 million to $25 million.



!Health Care-Related Facilities and Activities, funded at $304 million
in FY2008, would be eliminated.
!At the Substance Abuse and Mental Health Services Administration
(SAMHSA), Mental Health programs, funded at $889 million in
FY2008, would be reduced by $126 million to $763 million.
!At the Centers for Medicare and Medicaid Services (CMS), a Fraud
and Abuse Control Initiative would be funded at $198 million, while
CMS Program Management would be increased by $156 million,
from $3.15 billion in FY2008 to $3.31 billion.
!The Low-Income Home Energy Assistance Program (LIHEAP),
funded at $2.57 billion in FY2008, would be decreased by $570
million to $2.0 billion.
!The Social Services Block Grant, funded at $1.7 billion in FY2008,
would be reduced by $500 million to $1.2 billion, but only if a
legislative change proposed by the Administration were adopted by
Congress. (Under current law, the request remained at $1.7 billion.)
!Head Start, funded at $6.88 billion in FY2008, would be increased
by $149 million to $7.03 billion.
!The Community Services Block Grant (CSBG), funded at $654
million in FY2008, would be eliminated.
!The PHSSEF, funded at $729 million in FY2008, would be
increased by $667 million to $1.40 billion. Funding covers
homeland security activities and pandemic influenza preparedness,
both of which would be increased.
Abortion: Funding Restrictions. Annual L-HHS-ED appropriations
regularly contain restrictions that limit — for one year at a time — the circumstances
under which federal funds can be used to pay for abortions. Restrictions on
appropriated funds, popularly referred to as the “Hyde Amendments,” generally apply
to all L-HHS-ED funds. Medicaid is the largest program affected. Given the
perennial volatility of this issue, these provisions may be revisited at any time during
the annual consideration of L-HHS-ED appropriations. From FY1977 to FY1993,
abortions could be funded only when the life of the mother was endangered. The
103rd Congress modified the provisions to permit federal funding of abortions in
cases of rape or incest. The FY1998 L-HHS-ED appropriations, P.L. 105-78,
extended the Hyde provisions to prohibit the use of federal funds to buy managed
care packages that include abortion coverage, except in the cases of rape, incest, or
life endangerment. The FY1999 L-HHS-ED appropriations, P.L. 105-277, continued
the FY1998 Hyde Amendments with two added provisions: (1) a clarification to
ensure that the restrictions apply to all trust fund programs (namely, Medicare), and
(2) an assurance that Medicare + Choice plans (now Medicare Advantage) cannot
require the provision of abortion services. No changes were made from FY2000
through FY2004.
The FY2005 L-HHS-ED appropriations, P.L. 108-447 (H.Rept. 108-792, p.
1271), added a restriction, popularly referred to as the “Weldon Amendment,” that
prevents federal programs or state or local governments that receive L-HHS-ED
funds from discriminating against health care entities that do not provide or pay for
abortions or abortion services. The FY2006, FY2007, and FY2008 L-HHS-ED
appropriations retained the Weldon amendment language and the Hyde restrictions.



The current provisions can be found in §507 and §508 of P.L. 110-161, Division G.
For additional information, please see CRS Report RL33467, Abortion: Legislative
Response, by Jon O. Shimabukuro and Karen J. Lewis.
Embryonic Stem Cell Research: Funding Restrictions. On August
9, 2001, President Bush announced a decision to use federal funds for research on
human embryonic stem cells for the first time, but limited the funding to “existing
stem cell lines.” Embryonic stem cells have the ability to develop into virtually any
cell in the body, and have the potential to treat medical conditions such as diabetes
and Parkinson’s disease. In response to the President’s announcement, the NIH
developed a registry of 78 embryonic stem cell lines eligible for use in federally
funded research. However, many of these lines were found to be unavailable or
unsuitable for research; only 21 of the 78 eligible stem cell lines are currently
available for general research purposes. Some scientists are concerned about the
quality, longevity, and availability of eligible stem cell lines. The NIH Director and
many others believe that the advancement of research requires new stem cell lines.
The use of stem cells, however, raises ethical issues for some because the embryos
are destroyed in order to obtain the cells.
An FY1996 appropriations continuing resolution, P.L. 104-99 (§128), prohibited
NIH funds from being used for the creation of human embryos for research purposes
or for research in which human embryos are destroyed. Since FY1997, annual
appropriations acts have extended the prohibition to all L-HHS-ED funds, with the
NIH as the agency primarily affected. The restriction, originally introduced by
Representative Jay Dickey, has not changed significantly since it was first enacted.
The current provision can be found in §509 of P.L. 110-161, Division G. The
original FY2008 Senate L-HHS-ED bill, S. 1710 as reported, included a new §520
that would have allowed, if certain ethical requirements were met, amounts
appropriated under the act to be used to conduct human embryonic stem cell research
as long as the cells were derived before June 15, 2007, thus changing the August

2001 policy of the Bush Administration. The provision was dropped, however,


before floor consideration. For additional information, please see CRS Report
RL33540, Stem Cell Research: Federal Research Funding and Oversight, by Judith
A. Johnson and Erin D. Williams.
CRS Products
Health
CRS Report RL33467, Abortion: Legislative Response, by Jon O. Shimabukuro and
Karen J. Lewis.
CRS Report RL30731, AIDS Funding for Federal Government Programs: FY1981-
FY2009, by Judith A. Johnson.
CRS Report RS21044, Background and Legal Issues Related to Human Embryonic
Stem Cell Research, by Edward Chan-Young Liu.
CRS Report RL34448, Federal Research and Development Funding: FY2009, by
John F. Sargent et al.



CRS Report RS22438, Health Professions Programs in Title VII and Title VIII of the
Public Health Service (PHS) Act: Appropriations History (FY2002-FY2009),
by Bernice Reyes- Akinbileje and Mary Vennetta Wright.
CRS Report RL33695, The National Institutes of Health (NIH): Organization,
Funding, and Congressional Issues, by Pamela W. Smith.
CRS Report RL34098, Public Health Service (PHS) Agencies: Background and
Funding, by Pamela W. Smith et al.
CRS Report RL33279, The Ryan White HIV/AIDS Program, by Judith A. Johnson.
CRS Report RL33540, Stem Cell Research: Federal Research Funding and
Oversight, by Judith A. Johnson and Erin D. Williams.
CRS Report RL33997, Substance Abuse and Mental Health Services Administration
(SAMHSA): Reauthorization Issues, by Ramya Sundararaman.
Human Services
CRS Report RL30785, The Child Care and Development Block Grant: Background
and Funding, by Melinda Gish.
CRS Report RL34121, Child Welfare: Recent and Proposed Federal Funding, by
Emilie Stoltzfus.
CRS Report RL32872, Community Services Block Grants (CSBG): Funding and
Reauthorization, by Karen Spar.
CRS Report RL33805, Early Childhood Care and Education Programs in the 110th
Congress: Background and Funding, by Melinda Gish and Gail McCallion.
CRS Report RL30952, Head Start: Background and Issues, by Melinda Gish.
CRS Report RL31865, The Low-Income Home Energy Assistance Program
(LIHEAP): Program and Funding, by Libby Perl.
CRS Report RL33880, Older Americans Act: FY2008 Funding and FY2009 Budget
Request, by Angela Napili.
CRS Report 94-953, Social Services Block Grant (Title XX of the Social Security
Act), by Melinda Gish.
Websites
Department of Health and Human Services
[ http://www.hhs.gov]
[ http://www.hhs.gov/budget/docbudget.htm]



Detailed Appropriations Table
Table 10 shows the appropriations details for offices and major programs of
HHS.
Table 10. Detailed Department of Health and
Human Services Appropriations
($ in millions)
Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Public Health Service (PHS)
Health Resources and Services Administration (HRSA)
Community Health Centers 2,0652,092
National Health Service Corps 123121
Health Professions, Nursing 156110
Health Professions, other 1940
Childrens Hospitals Grad. Med. Educ. 3020
Maternal and Child Health Block Grant 666666
Autism and Other Develop’l Disorders 3636
Ryan White AIDS Programs 2,1422,143a
Rural Health Programs 13625
Family Planning (Title X) 300300
Health Care-Related Facilities & 3040
Ac tivities
Vaccine Injury Compensation Trust 119257
Fund (mandatory)
HRSA, other 439379
HRSA subtotal 6,9836,129
Centers for Disease Control and Prevention (CDC)
Infectious Diseases 1,8921,857
Health Promotion 961932
Energy Employees Occupational
Illness Compensation Programb5555
(mandato ry)
Terrorism Preparedness and Response 1,4791,419
Preventive Health/Health Services BG 970
CDC Buildings and Facilities 550
CDC, other 1,5651,409
CDC subtotalc 6,1055,673
National Institutes of Health (NIH)c 29,23029,230
Substance Abuse and Mental Health Services Administration (SAMHSA)
Mental Health889763
(Mental Health Block Grant, non-add)400400
Substance Abuse Treatment2,0752,025
Substance Abuse Prevention194158
(Substance Abuse Blk Grant, non-add)1,6801,699
SAMHSA, other 7579
SAMHSA subtotal 3,2343,025
Agency for Healthcare Research and 00
Quality (AHRQ)
AHRQ program level (non-add) 335326
PHS subtotal 45,55244,057



Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Centers for Medicare and Medicaid Services (CMS)
Medicaid Grants to States (mandatory) 206,088221,035
Medicare Trust Funds (mandatory) 188,445195,308
CMS Program Management 3,1523,307
Fraud and Abuse Control initiative 0198
CMS subtotal 397,684419,848
Administration for Children and Families (ACF)
Family Support Payments (mandatory) 4,2403,759
Low Income Home Energy Assistance 2,5702,000
Program (LIHEAP)
Refugee and Entrant Assistance 656628
Child Care and Development Block 2,0622,062
Grant (CCDBG)
Social Services Block Grant (SSBG) 1,7001,700d
(Title XX) (mandatory)
Head Start 6,8787,027
Child Welfare Services 282282
Developmental Disabilities 180180
Community Services Block Grant 6540
Battered Womens Shelters 123123
Abstinence Education 109137
Children and Family Services, other 745746
Promoting Safe and Stable Families 345345
(PSSF) (mandatory)
PSSF (discretionary) 6363
Foster Care and Adoption Assistance 6,8436,896
(mandato ry)
ACF subtotal 27,45025,947
Administration on Aging (AOA) 1,4131,381
Office of the Secretary
General Departmental Management 354380
Medical Benefits, Commissioned 397435
Officers (mandatory)
Public Health and Social Services 7291,396
Emergency Fund (PHSSEF)
Office of the Secretary, other 183170
Office of the Secretary subtotal 1,6642,380
TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Total Appropriationse 473,764493,614
Current Year Funding 402,306417,725
One-Year Advance Funding 71,45775,889
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations. Details may not add to totals due
to rounding.
a. The Denali Commission, previously funded under Rural Health Programs, is now grouped into the
HRSA, other line in this table.
b. Before FY2009, EEOICPA administrative and statutory activities were funded through DOL, with
some of the funding transferred to CDC by interagency agreement. The FY2009 request
proposed direct appropriations (mandatory) to CDC for the activities; Part B administrative
expenses are still in DOL.
c. Two HHS programs also received FY2008 funds from Interior-Environment appropriations — $74
million for CDC and $78 million for NIH; neither amount is included in this table.



d. The $1.7 billion shown reflects the current law entitlement to states for the Social Services Block
Grant. For FY2009, the Administration proposed a reduction of $500 million in the
entitlement, which would bring the requested total to $1.2 billion.
e. Appropriations totals include discretionary and mandatory funds, and may be subject to additional
scorekeeping and other adjustments. Two HHS agencies were funded through other
appropriations in FY2008: the Food and Drug Administration (FDA) in Agriculture
appropriations ($1.7 billion), and the Indian Health Service (IHS) in Interior-Environment
appropriations ($3.3 billion); neither agency is included in this table.
Department of Education
For FY2009, the President’s budget request includes $60.1 billion in
discretionary funding for the Department of Education, $871 million (1.5%) over the
FY2008 amount of $59.2 billion (Table 11).
Table 11. Department of Education
Discretionary Appropriations
($ in billions)
F unding FY2008Adjusted FY2009Request FY2009House FY2009Sena t e FY2009Ena c t e d
Appropriations 59.260.1
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
Amounts represent discretionary spending funded by L-HHS-ED appropriations; funds for mandatory
programs are excluded.
A single mandatory ED program is included in the L-HHS-ED bill; the
Vocational Rehabilitation State Grants program was funded at $2.9 billion in
FY2008.
Key Issues
President’s Request. Under the FY2009 budget request, funding for
several programs would increase, and six new education programs were proposed.2
While the President’s request would increase discretionary funding for education by
$871 million over the FY2008 funding level, it would eliminate funding for 47
existing programs.


2 These programs include Math Now ($95 million), Pell Grants for Kids ($300 million),
Adjunct Teacher Corps ($10 million), Advanced Placement and International Baccalaureate
programs ($70 million), Loans for Short-Term Training ($3 million), and Advancing
American through Foreign Language Partnerships ($24 million). The Advanced Placement
and International Baccalaureate programs authorized by the COMPETES Act would replace
the Advancement Placement program (funded at $44 million in FY2008) authorized by the
Elementary and Secondary Education Act of 1965 (ESEA). The President’s request wouldst
also make substantial modifications to the 21 Century Community Learning Centersst
program, including renaming it the 21 Century Learning Opportunities program.

The President’s FY2009 budget request proposed changes of at least $100
million for ED programs, as follows.
!Elementary and Secondary Education Act of 1965 (ESEA)
programs, funded in aggregate at $24.4 billion in FY2008, would
increase by $125 million in the President’s FY2009 budget request.3
!Title I, Part A, Grants to Local Educational Agencies (LEAs) for
Education for the Disadvantaged, funded at $13.9 billion in FY2008,
would increase by $406 million.
!Reading First State Grants, funded at $393 million in FY2008,
would increase by $607 million.
!One K-12 education initiative of at least $100 million was proposed
by the President: $300 million for Pell Grants for Kids.
!Teacher Quality State Grants, funded at $2.9 billion in FY2008,
would decrease by $100 million.
!Educational Technology State Grants, funded at $267 million in
FY2008, would be eliminated.
!21st Century Community Learning Centers, funded at $1.1 billion in
FY2008, would decrease by $281 million and be renamed the 21st
Century Learning Opportunities program.
!The Fund for the Improvement of Education (FIE), funded at $254
million in FY2008, would be reduced by $201 million.
!The Teacher Incentive Fund, funded at $97 million in FY2008,
would increase by $103 million.
!Safe and Drug-Free Schools State Grants, funded at $295 million in
FY2008, would decrease by $195 million.
!The Individuals with Disabilities Education Act (IDEA) Part B
Grants to States program, funded at $10.9 billion in FY2008, would
increase by $337 million.
!The Perkins Career and Technical Education program, funded at
$1.3 billion in FY2008, would be eliminated.
!The Pell Grants program, funded at $14.2 billion in FY2008, would
increase by $2.7 billion. The maximum appropriated award would
be $4,310; $4,241 was the maximum award in FY2008.4
!Federal Supplemental Educational Opportunity Grants, funded at
$757 million in FY2008, would be eliminated.


3 These totals are based only on funding for ESEA. When the House and Senate calculate
total funding for the No Child Left Behind Act (NCLBA), which reauthorized the ESEA in
2001, the total includes funding for the Education for Homeless Children and Youth, and
for Comprehensive Centers. The former is authorized by the McKinney-Vento Homeless
Assistance Act, and the latter is authorized by the Educational Technical Assistance Act.
While both Acts were amended by the NCLBA, none of the funding for either of the two
programs is authorized by ESEA. See Table 12 for additional information.
4 The College Cost Reduction Act (P.L. 110-84) provided mandatory funding for the Pell
Grant program beginning in FY2008. These mandatory funds coupled with the maximum
discretionary amount included in the President’s request would result in a maximum Pell
Grant award of $4,800 for FY2009. The total maximum Pell Grant award in FY2008 was
$ 4,731.

!Aid for Institutional Development, funded at $501 million in
FY2008, would be decreased by $139 million.
!The Institute for Education Sciences, funded at $546 million in
FY2008, would increase by $112 million.
ESEA Funding Shortfall? Since the enactment of the No Child Left Behind
Act of 2001, P.L. 107-110, which amended the ESEA among other programs, there
has been a continuing discussion regarding the appropriations “promised” and the
resulting “shortfall” when the enacted appropriations are compared to authorization
levels. Some would contend that the ESEA authorizations of appropriations, as
amended by NCLBA, represent a funding commitment that was promised in return
for legislative support for the new administrative requirements placed on state and
local educational systems. They would contend that the authorized levels are needed
for implementing the new requirements, and that the differences between “promised”
and actual funding levels represent a shortfall of billions of dollars. Others would
contend that the authorized funding levels represent no more than appropriations
ceilings, and as such are no different from authorizations for most education
programs. That is, when the authorization amount is specified, it represents only a
maximum amount, with the actual funding level to be determined during the regular
annual appropriations process. In the past, education programs with specified
authorization levels generally have been funded at lower levels; few have been
funded at levels equal to or higher than the specified authorization amount.
Five ESEA programs, as amended by NCLBA, had specific authorization levels
for FY2002 through FY2007: Title I, Part A Grants to Local Educational Agencies
(LEAs); 21st Century Community Learning Centers (21CCLC); the Education Block
Grant; School Choice; and the Fund for the Improvement of Education. For FY2007,
the aggregate authorization for these five programs was $28.9 billion, and the
appropriation was $14.4 billion, or $14.5 billion less than the amount authorized.
All current ESEA program authorizations expired after FY2007. They have
been automatically extended, however, for one additional year under section 422 of
the General Education Provisions Act (GEPA) (20 U.S.C. 1226a, providing for
contingent extension of programs). Therefore, current ESEA programs are
authorized through September 30, 2008. GEPA also specifies that the amount
authorized to be appropriated for a program during the extension shall be the amount
that was authorized to be appropriated for the program during the terminal fiscal year
of the program. Thus, in the case of the five ESEA programs with specific
authorization levels for FY2007, those authorizations remain the same for FY2008.
Therefore, for FY2008, the aggregate authorization for the five programs was $28.9
billion, and the programs were funded at $15.7 billion, or $13.1 billion less than the
amount authorized.
The GEPA extension applied for one year only. For FY2009, all funding for
ESEA programs is taken to be based on authorizations provided implicitly by
appropriations, with funds used under the policies in effect at the end of the explicit
authorization period. That is, if one assumes that appropriations will continue to be
provided for ESEA programs despite an expired authorization, it may also be
reasonable to assume that the use of these funds will continue to be governed by the
same policies as they were when the ESEA was still explicitly authorized. Under



these circumstances, the authorization levels for the five ESEA programs with
specific authorization levels for FY2007 would continue to have the same
authorization levels in FY2009. Thus, the aggregate authorization for these five
programs would continue to be $28.9 billion. The President’s FY2009 request for
these five programs was $15.4 billion, or $13.5 billion less than the authorization.
IDEA Funding Shortfall? From 1975 to 2004, the IDEA Special Education
Part B Grants to States program authorized state payments up to a maximum amount
of 40% of the national average per-pupil expenditure (APPE) times the number of
children with disabilities ages 3-21 that each state serves. Appropriations have never
reached the 40% level. In 2004, Congress addressed the funding issue in P.L. 108-
446, which specified authorization ceilings for Part B Grants to States for FY2005
through FY2011. For FY2008, the authorized amount was $19.2 billion, and $10.9
billion was appropriated, or $8.3 billion less than the amount authorized. For
FY2009, the authorized amount was $21.5 billion, and the request was for $11.3
billion, or $10.2 billion less than the authorized amount. As with ESEA and
NCLBA, some view these differences as funding shortfalls, while others see the
maximum federal share and the specified authorizations as nothing more than
appropriations ceilings. For additional information, please see CRS Report
RL32085, Individuals with Disabilities Education Act (IDEA): Current Funding
Trends, by Ann Lordeman.
Forward Funding and Advance Appropriations. Most appropriations
are available for obligation during the federal fiscal year of the appropriations bill.
For example, most FY2009 appropriations will be available for obligation from
October 1, 2008, through September 30, 2009. Several L-HHS-ED programs,
including some of the larger ED programs, have authorization or appropriations
provisions that allow funding flexibility for program years that differ from the federal
fiscal year. For example, many of the elementary and secondary education formula
grant programs receive appropriations that become available for obligation to the
states on July 1 of the same year as the appropriations, and remain available for 15
months through the end of the following fiscal year. That is, FY2009 appropriations
for some programs will become available for obligation to the states on July 1, 2009,
and will remain available until September 30, 2010. This budgetary procedure is
popularly known as “forward” or “multi-year” funding, and is accomplished through
funding provisions in the L-HHS-ED appropriations bill.
Forward funding in the case of elementary and secondary education programs
was designed to allow additional time for school officials to develop budgets in
advance of the beginning of the school year. For Pell Grants for undergraduates,
however, aggregate program costs for individual students applying for postsecondary
educational assistance cannot be known with certainty ahead of time. Appropriations
from one fiscal year primarily support Pell Grants during the following academic
year; that is, the FY2009 appropriations will be used primarily to support grants for
the 2009-2010 academic year. Unlike funding for elementary and secondary
education programs, however, the funds for Pell Grants remain available for
obligation for two full fiscal years.
An advance appropriation occurs when the appropriation is provided for a fiscal
year beyond the fiscal year for which the appropriation was enacted. In the case of



FY2009 appropriations, funds normally would have become available October 1,
2008, under regular funding provisions, but will not become available for some
programs until July 1, 2009, under the forward funding provisions discussed above.
However, if the July 1, 2009 forward funding date for obligation were to be
postponed by three months — until October 1, 2009 — the appropriation would be
reclassified as an advance appropriation since the funds would become available only
in a subsequent fiscal year, FY2010. For example, the FY2009 budget request for
Title I, Part A Grants to LEAs was $14.3 billion. This amount includes not only
forward funding of $6.4 billion (to become available July 1, 2009), but also an
advance appropriation of $7.9 billion (to become available October 1, 2009). Like
forward funding provisions, these advance appropriations are specified through
provisions in the annual appropriations bill.
What is the impact of these changes in funding provisions? At the
appropriations level, there is no difference between forward funded and advance
appropriations except for the period available for obligation. At the program or
service level, relatively little is changed by the three-month delay in the availability
of funds, since most expenditures for a standard school year occur after October 1.
At the scorekeeping level, however, a significant technical difference occurs because
forward funding is counted as part of the current fiscal year, and is therefore fully
included in the current 302(b) allocation for discretionary appropriations. Under
federal budget scorekeeping rules, an advance appropriation is not counted in the
302(b) allocation until the following year. In essence, a three-month change from
forward funding to an advance appropriation for a given program allows a one-time
shift from the current year to the next year in the scoring of discretionary
appropriations. For more information, please see CRS Report RS20441, Advance
Appropriations, Forward Funding, and Advance Funding, by Sandy Streeter.
CRS Products
CRS Report RS20441, Advance Appropriations, Forward Funding, and Advance
Funding, by Sandy Streeter.
CRS Report RL33805, Early Childhood Care and Education Programs in the 110th
Congress: Background and Funding, by Melinda Gish and Gail McCallion.
CRS Report RL33960, The Elementary and Secondary Education Act, as Amended
by the No Child Left Behind Act: A Primer, by Wayne C. Riddle and Rebecca
R. Skinner.
CRS Report RL31668, Federal Pell Grant Program of the Higher Education Act:
Background and Reauthorization, by Charmaine Mercer.
CRS Report RL32085, Individuals with Disabilities Education Act (IDEA): Current
Funding Trends, by Ann Lordeman.
CRS Report RL33371, K-12 Education: Implementation Status of the No Child Left
Behind Act of 2001 (P.L. 107-110), by Gail McCallion et al.



CRS Report RL33749, The No Child Left Behind Act: An Overview of
Reauthorization Issues for the 110th Congress, by Wayne C. Riddle.
CRS Report RL34214, A Primer on the Higher Education Act (HEA), by Blake Alan
Naughton.
CRS Report RL34017, Vocational Rehabilitation Grants to States and Territories:
Overview and Analysis of the Allotment Formula, by Scott Szymendera.
Websites
Department of Education
[ http://www.ed.gov/index .jhtml]
[ h ttp://www.ed.gov/about/overv iew/budget/index .html? src=gu]
Detailed Appropriations Table
Table 12 shows the appropriations details for offices and major programs of
ED.
Table 12. Detailed Department of Education Appropriations
($ in millions)
Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
No Child Left Behind Act (non-a 24,54024,665
a dd)
Education for the Disadvantaged
Title I, Part A Education for the 13,89914,305
Disadvantaged, Grants to LEAs
Even Start 660
School Improvement Grants 491491
Reading First State Grants 3931,000
Math Now 095
Pell Grants for Kids 0300
Migrant State Grants 380400
Education for the Disadvantaged, 260326
other
Education for the Disadvantaged15,49016,917
subtotal
Impact Aid
Impact Aid 1,2411,241
School Improvement Programs
Teacher Quality State Grants 2,9352,835
Mathematics and Science 179179
P artnerships
Educational Technology State 2670
Grants
21st Century Community Learningb 1,081800
Ce nte r s
State Assessments 409409



Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Rural Education 172172
School Improvement, other 246172
School Improvement subtotal5,2894,566
Indian Education
Indian Education 120120
Innovation and Improvement
Charter School Grants 211236
Fund for the Improvement of 25452
Education general funds (FIE)
Teacher Incentive Fund 97200
Innovation and Improvement, other 424379
Innovation and Improvement 986868
subtotal
Safe Schools and Citizenship Education
Safe and Drug-Free Schools State 295100
Grants
Safe Schools and Citizenship, other 399182
Safe Schools and Citizenship 282
subtotal 693
English Language Acquisition
English Language Acquisition State 700730
Grants
Special Education
IDEA, Part B, Grants to States 10,94811,285
Special Education, other 1,0461,051
Special Education subtotal11,99412,336
Rehabilitation Services and Disability Research
Vocational Rehabilitation State 2,8742,975
Grants (mandatory)
Rehabilitation Services, other 403344
Rehabilitation Services subtotal3,2773,319
Special Institutions for Persons with Disabilities
Special Institutions for Persons 195200
With Disabilities
Vocational and Adult Education
Perkins Career and Technical 1,2720
Ed ucatio n
Adult Education 567575
Vocational and Adult, other 1020
Vocational and Adult Education1,942575
subtotal
Student Financial Aid
Pell Grants, maximum award 4,2414,310
(in dollars, non-add)
Pell Grants 14,21516,941
Supplemental Educational 7570
Opportunity Grants
Federal Work-Study 980980
Federal Perkins Loans 640



Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Leveraging Educational Assistance 640
Partnership (LEAP)
Student Financial Aid subtotal16,08117,921
Student Aid Administration
Student Aid Administration 696714
Higher Education
Aid for Institutional Development 501363
Fund for the Improvement of 12037
Postsecondary Education (FIPSE)
TRIO Programs 828828
GEAR UP 303303
Higher Education, other 269202
Higher Education subtotal2,0221,734
Howard University
Howard University 233233
Institute of Education Sciences
Institute of Education Sciences 546658
Departmental Management
Departmental Management 552600
Department of Education, otherc
Department of Education, other 114
TOTALS, Department of Education
Total Appropriationsd 62,05663,027
Current Year Funding 45,03846,010
One-Year Advance Funding 17,01717,017
Source: Amounts are based on the April 14, 2008, table from House Appropriations Committee.
FY2008 amounts reflect the funding provided under P.L. 110-161, Consolidated Appropriations Act,
2008. They do not yet include FY2008 supplemental appropriations. Details may not add to totals
due to rounding.
a. The NCLBA total reported in this table for the FY2008 adjusted appropriations and FY2009
request does not match the NCLBA total reported by ED. ED only includes in its total programs
that are authorized specifically by the NCLBA, while the House and Senate include funding for
the Education for Homeless Children and Youth, and Comprehensive Centers. The former is
authorized by the McKinney-Vento Homeless Assistance Act, and the latter is authorized by the
Educational Technical Assistance Act. While both Acts were amended by the NCLBA, none
of the funding for either of the two programs is authorized by NCLBA. According to ED, the
NCLBA total for FY2008 enacted was $24,419 million, and the total for the FY2009 request
was $24,544 million. stst
b. The 21 Century Community Learning Centers program would be renamed the 21 Century
Learning Opportunities program by the President’s request.
c. This includes two appropriations for FY2008: College Housing and Academic Facilities Loans and
the Historically Black Colleges and Universities Capital Financing program. The FY2009
request includes these programs and the Loans for Short-Term Training program, a new program
included in the FY2009 request.
d. Appropriations totals include discretionary and mandatory funds, and are subject to additional
scorekeeping and other adjustments.



Related Agencies
FY2008 discretionary appropriations for L-HHS-ED related agencies were $12.0
billion, as shown in Table 13. For FY2009, the Administration requested $12.1
billion, or $0.1 billion (0.9%) more than the FY2008 amount.
Table 13. Related Agencies Discretionary Appropriations
($ in billions)
F unding FY2008Adjusted FY2009Request FY2009House FY2009Sena t e FY2009Ena c t e d
Appropriatio ns 12.0 12.1
Source: Amounts are based on the April 14, 2008, table of the House Committee on Appropriations.
Mandatory programs for related agencies included in the L-HHS-ED bill are
funded at $39.0 billion for FY2008, virtually all of it for the Supplemental Security
Income (SSI) program.
Key Issues
President’s Request. The President’s FY2009 budget for related agencies
would make changes in discretionary spending of at least $100 million for the
following agencies:
!In recent years, the Corporation for Public Broadcasting (CPB) has
been funded two years in advance. The President’s FY2009 budget
does not request two-year advance funding (for FY2011) for the
CPB. The President’s budget request would also reduce the $420
million advance for FY2010 (appropriated in FY2008) by $220
million and the $400 million advance for FY2009 (appropriated in
FY2007) by $200 million.5
!The Administration’s request for FY2009 would increase funding
for SSA administrative expenses by $582 million, from $9.7 billion
for FY2008 to $10.3 billion for FY2009.


5 In L-HHS-ED appropriations for FY2006, Congress approved a two-year advance of $400
million for CPB for FY2008. This amount was reduced by 1.747% (to $393 million) in L-
HHS-ED appropriations for FY2008 (P.L. 110-161).

CRS Products
CRS Report RL33931, The Corporation for National and Community Service:
Overview of Programs and FY2009 Funding, by Ann Lordeman and Abigail B.
Rudman.
CRS Report RS22168, The Corporation for Public Broadcasting: Federal Funding
Facts and Status, by Glenn J. McLoughlin.
CRS Report RL31320, Federal Aid to Libraries in the Museum and Library Services
Act of 2003, by Gail McCallion.
CRS Report RS22677, Social Security Administration: Administrative Budget
Issues, by Kathleen Romig.
CRS Report RL33544, Social Security Reform: Current Issues and Legislation, by
Dawn Nuschler.
Websites
Committee for Purchase From People Who Are Blind or Severely Disabled
[ http://www.jwod.gov/jwod/index .html]
Corporation for National and Community Service
[ http://www.cns.gov]
Corporation for Public Broadcasting
[ h ttp://www.cpb.org]
Federal Mediation and Conciliation Service
[ http://www.fmcs.gov]
Federal Mine Safety and Health Review Committee
[ h ttp://www.fmshrc.gov]
Institute of Museum and Library Services
[ http://www.imls.gov]
Medicare Payment Advisory Commission
[ h ttp://www.medpac.gov]
National Commission on Libraries and Information Science
[http://www.nclis.gov]
National Council on Disability
[ http://www.ncd.gov]
National Labor Relations Board
[ http://www.nlrb.gov]



National Mediation Board
[ http://www.nmb.gov]
Occupational Health and Safety Review Commission
[ h ttp://www.oshrc.gov]
Railroad Retirement Board
[ h ttp://www.rrb.gov]
Social Security Administration
[ http://www.ssa.gov]
[ http://www.ssa.gov/budget]
Detailed Appropriations Table
Table 14 shows the appropriations details for offices and major programs of the
L-HHS-ED related agencies.
Table 14. Detailed Related Agencies Appropriations
($ in millions)
Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
Committee for Purchase from People 55
Who Are Blind or Severely Disabled
Corporation for National and Community Service (CNCS)
CNCS Domestic Volunteer Service Programs (DVSP)
Volunteers in Service to America 9492
(VIST A)
National Senior Volunteer Corps 214174
DVSP subtotal 308266
CNCS National and Community Service Programs (NCSP)
National Service Trust 123132
AmeriCorps Grants 257274
National Civilian Community Corps 2410
NCSP, other 7270
NCSP subtotal 475486
CNCS, other 7478
CNCS subtotal 856830
Corporation for Public Broadcasting (CPB)
CPB, two-year advance for FY2011
(current request) with FY2010 4200
comp arable
CPB advance for FY2010 with 400420
FY2009 comparable (non-add)
CPB FY2010 rescission (non-add) 0-220
CPB advance for FY2009 with 393400
FY2008 comparable (non-add)
CPB FY2009 rescission (non-add) 0-200



Office or Major ProgramFY2008AdjustedFY2009RequestFY2009HouseFY2009SenateFY2009Enacted
CPB Digitalization Program 290
CPB Interconnection 260
CPB FY2008/FY2009 subtotal 550
Federal Mediation and Conciliation 4345
Ser vice
Federal Mine Safety and Health 89
Review Committee
Institute of Museum and Library 264271
Services (IMLS)
Medicare Payment Advisory 1111
C o mmi s s i o n
National Commission on Libraries 0.40
and Information Science
National Council on Disability 33
National Labor Relations Board 252263
National Mediation Board 1312
Occupational Safety and Health 1111
Review Commission
Railroad Retirement Board 181185
Social Security Administration (SSA)a
SSA Payments to Social Security 2820
Trust Funds (mandatory)
Supplemental Security Income (SSI) 38,72842,665
(mandato ry)
SSI Administrative Expenses 3,0193,149
SSA SSI subtotal 41,74645,814
Social Security and Medicare 6,7267,178
Administrative Expenses
Total SSA Administrative Expenses 9,74510,327
(non-add)
SSA Office of Inspector General 9298
SSA subtotal 48,59253,111
TOTALS, RELATED AGENCIES
Total Appropriationsb 50,71354,756
Current Year Funding 35,49339,356
One-Year Advance Funding 14,80015,400
Two-Year Advance Funding 4200
Source: Amounts are based on the April 14, 2008, table of the House Committee on Appropriations.
a. The Social Security trust funds are considered off-budget, but the Supplemental Security Income
(SSI) program, SSA administrative expenses, and certain related SSA activities are included in
appropriations for L-HHS-ED and related agencies.
b. Appropriations totals include discretionary and mandatory spending, and are subject to additional
scorekeeping and other adjustments.



Appendix A. Terminology and Web Resources
The following items include some of the key budget terms used in this report;
they are based on CRS Report 98-720, Manual on the Federal Budget Process, by
Robert Keith and Allen Schick. The websites provide general information on the
federal budget and appropriations.
Advance appropriation is budget authority that will become available in a fiscal
year beyond the fiscal year for which the appropriations act is enacted; scorekeeping
counts the entire amount in the fiscal year it first becomes available for obligation.
Appropriation is budget authority that permits federal agencies to incur obligations
and to make payments out of the Treasury for specified purposes. Appropriations
represent the amounts that agencies may obligate during the period of time specified
in the law. Annual appropriations are provided in appropriations acts; most
permanent appropriations are provided in substantive law. Major types of
appropriations are regular, supplemental, and continuing.
Budget authority is legal authority to incur financial obligations that normally result
in the outlay of federal government funds. Major types of budget authority are
appropriations, borrowing authority, and contract authority. Budget authority also
includes the subsidy cost to the federal government of direct loans and loan
guarantees, estimated on a net present value basis.
Budget resolution is a concurrent resolution passed by both chambers of Congress,
but not requiring the signature of the President, setting forth the congressional budget
for at least five fiscal years. It includes various budget totals and functional
allocations.
Discretionary spending is budget authority provided in annual appropriations acts,
other than appropriated entitlements.
Entitlement authority is the authority to make payments to persons, businesses, or
governments that meet the eligibility criteria established by law; as such, it represents
a legally binding obligation on the part of the federal government. Entitlement
authority may be funded by either annual or permanent appropriations acts.
Forward funding is budget authority that becomes available after the beginning of
the fiscal year for which the appropriation is enacted and remains available into the
next fiscal year; the entire amount is counted or scored in the fiscal year in which it
first becomes available.
Mandatory (direct) spending includes (a) budget authority provided in laws other
than appropriations; (b) entitlement authority; and (c) the Food Stamp program.
Rescission is the cancellation of budget authority previously enacted.
Scorekeeping is a set of procedures for tracking and reporting on the status of
congressional budgetary actions.



Supplemental appropriation is budget authority provided in an appropriations act
that provides funds that are in addition to regular appropriations.
Websites
General information on budget and appropriations may be found at these
websites. Specific L-HHS-ED agency sites are listed in relevant sections of this
report.
House Committees
[ http://appropriations.house.gov/]
[ h ttp://republicans.appropriations.house.gov/]
[ http://budget.house.gov/]
[ http://budget.house.gov/republicans/]
Senate Committees
[http://appropriations.senat e.gov/]
[ h ttp://budget.senate.gov/democratic/]
[ h ttp://budget.senate.gov/republican/]
Congressional Budget Office (CBO)
[ http://www.cbo.gov/]
Congressional Research Service (CRS)
[ http://apps.crs.gov/cli/level _2.aspx ? PRDS_CLI_ITEM_ID=73]
Government Accountability Office (GAO)
[ http://www.gao.gov/]
Government Printing Office (GPO)
[ h ttp://www.gpoaccess.gov/usbudget/]
Office of Management and Budget (OMB)
[ http://www.whitehouse.gov/omb/budget/index .html]
[ http://www.whitehouse.gov/omb/legi slative/sap/index .html]