[Analytical Perspectives]
[Special Analyses and Presentations]
[9. Aid to State and Local Governments]
[From the U.S. Government Publishing Office, www.gpo.gov]


 
               9.  AID TO STATE AND LOCAL GOVERNMENTS /1/

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  \1\ Federal aid to State and local governments is defined as the 
provision of resources by the Federal Government to support a State or 
local program of governmental service to the public. The three primary 
forms of aid are grants, loan subsidies, and tax expenditures.
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   State and local governments have a vital constitutional 
responsibility to provide government services. They have the major role 
in providing domestic public services, such as public education, law 
enforcement, roads, water supply, and sewage treatment. The Federal 
Government contributes to that role both by promoting a healthy economy 
and by providing grants, loans, and tax subsidies to State and local 
governments.
   Federal grants help State and local governments finance programs 
covering most areas of domestic public spending, including income 
support, infrastructure, education, and social services. Federal grant 
outlays were $284.7 billion in 2000 and are estimated to increase to 
$316.3 billion in 2001 and $350.1 billion in 2002.
   Grant outlays for payments for individuals, such as Medicaid, are 
estimated to be 63.6 percent of total grants in 2002; for physical 
capital investment, 16.1 percent; and for all other purposes, largely 
education, training, and social services, 20.3 percent.
   Federal aid to State and local governments is also provided through 
tax expenditures. Tax expenditures are the result of special exclusions, 
exemptions, deductions, credits, deferrals, or tax rates in the Federal 
tax laws.
   The two major tax expenditures benefitting State and local 
governments are the deductibility of personal income and property taxes 
from gross income for Federal income tax purposes, and the exclusion of 
interest on State and local public purpose bonds from Federal taxation. 
These provisions, on an outlay equivalent basis, are estimated to be 
$102.7 billion in 2001 and $108.0 billion in 2002. A detailed discussion 
of the measurement and definition of tax expenditures and a complete 
list of the amount of specific tax expenditures are in Chapter 5, ``Tax 
Expenditures.'' As discussed in that chapter, there are generally 
interactions among tax expenditure provisions, so that the estimates 
above only approximate the aggregate effect of these provisions.
   Tax expenditures that especially aid State and local governments are 
displayed separately at the end of Table 5-5 in that chapter.

               Table 9-1.  FEDERAL GRANT OUTLAYS BY AGENCY
                        (In billions of dollars)
------------------------------------------------------------------------
                                                            Estimate
                    Agency                       2000  -----------------
                                                Actual    2001     2002
------------------------------------------------------------------------
Department of Agriculture....................     19.0     20.5     21.2
Department of Commerce.......................      0.5      0.7      0.6
Department of Education......................     22.2     24.5     27.1
Department of Energy.........................      0.1      0.2      0.3
Department of Health and Human Services......    162.5    184.5    208.3
Department of Housing and Urban Development..     25.1     26.7     27.8
Department of the Interior...................      2.2      2.7      2.6
Department of Justice........................      4.8      4.2      5.8
Department of Labor..........................      7.3      8.3      9.1
Department of Transportation.................     32.2     35.3     38.3
Department of the Treasury...................      0.5      0.5      0.4
Department of Veterans Affairs...............      0.4      0.4      0.5
Environmental Protection Agency..............      3.5      3.6      3.8
Federal Emergency Management Agency..........      2.5      2.4      2.5
Other agencies...............................      1.8      1.8      1.8
                                              --------------------------
 Total.......................................    284.7    316.3    350.1
------------------------------------------------------------------------

   Table 9-1 shows the distribution of grants by agency. Grant outlays 
for the Department of Health and Human Services are estimated to be 
$208.3 billion in 2002, 59.5 percent of total grants, more than five 
times as much as any other agency.

                  HIGHLIGHTS OF THE FEDERAL AID PROGRAM

   Major proposals in this budget affect Federal aid to State and local 
governments and the important relationships between the levels of 
government. Through the use of grants, the Federal government can share 
with State and local governments the cost and, ultimately, the benefits 
of a better educated, healthier, and safer citizenry. The Administration 
is committed to working with State and local governments to make our 
Federal system more efficient and effective and to improving the design, 
administration, and financial management of Federal grant programs. One 
way the Administration will do this is by expanding a government-wide 
effort to use electronic processing in the administration of grant 
programs.
   This budget reflects the Administration's commitment to giving State 
and local governments increased flexibility. Through the use of grants, 
Federal agencies can create partnerships with State and local 
governments that focus on common goals and the progress made toward 
meeting them. The Administration's efforts to improve the grant 
administration process will include efforts to consolidate grants that 
support programs with similar missions to create one flexible grant, and 
ex

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pand transfer authorities for public health grants to remove barriers to 
target resources.
   In addition, this budget proposes several initiatives to help all 
children read by the third grade; improve the services provided to 
Indian children to address their unique educational and cultural needs; 
assist low income working parents obtain quality after school childcare 
with a strong educational component; establish positive incentives for 
private landowners and local communities to preserve land and protect 
imperiled species; aid counties along the Southwest Border with costs 
associated with federally-referred drug cases; and expand transportation 
and employment options for people with disabilities.
   Highlights of grants to State and local governments follow. For 
additional information on grants, see the detailed Table 9-3 in this 
Chapter, A Blueprint for New Beginnings (February 28, 2001), or Section 
III of the Budget volume.

Education

   The budget requests $29.8 billion in 2002 program level for the 
Department of Education for grants to States and local governments for 
education, an increase of $3.3 billion above the 2001 amount of $26.5 
billion. These program levels do not equate with 2001 and 2002 budget 
authority, which are distorted by advance appropriations. The budget 
proposes to reverse the misleading budget practice of using advance 
appropriations simply to avoid spending limitations. The education 
proposals in this budget will help States improve accountability for 
school and student performance, enhance teacher quality, increase 
flexibility, and support innovative programs.
   The President's plan would grant States and school districts 
unprecedented freedom from rules and regulations--in exchange for 
accountability for results. States will establish accountability systems 
built on high standards, annual tests, measurable goals, rewards for 
success, and sanctions for failure. They will be required to test 
students every year in grades 3-8 in math and reading so that parents, 
teachers, and communities will know if their schools and students are 
meeting State academic standards. The budget provides $320 million to 
support the costs of developing new assessments. Once accountability 
systems are in place, a new Federal fund will reward States and schools 
that improve student achievement.
   The budget requests $9.1 billion for Title I Grants to Local 
Educational Agencies (LEAs) to help improve achievement among students 
most at-risk of not reaching State academic standards. The Title I 
program enables high-poverty schools to provide extra educational 
assistance to their students so they can catch up with their peers. The 
President's plan would require States to set measurable performance 
targets to ensure that all groups of disadvantaged students improve, and 
would hold schools accountable for meeting those goals. Schools that 
fail to meet performance targets will receive help to turn themselves 
around. The Administration seeks $400 million for 2002 within Title I 
Grants to LEAs for low-performing schools, a $175 million or 78 percent 
increase over 2001. States and districts will use these funds to provide 
technical assistance and intensive interventions to improve achievement 
in schools that are failing to make sufficient academic gains. Students 
in schools that are consistently low-performing will have the option of 
transferring to a better public school, or of using their share of 
Federal Title I funds to seek supplemental educational services or 
private school alternatives. This combination of accountability for 
improved achievement among all groups of students, extra help for 
struggling schools, and the unacceptability of chronic failure, provides 
powerful incentives for all Title I schools to use their funds on 
effective, proven practices in order to achieve results.
   The budget builds a foundation for success by investing $900 million 
for 2002 in the Reading First initiative to help all children read by 
third grade. This new program will provide funds to States that 
establish comprehensive reading programs in kindergarten through second 
grade. States would be required to implement scientifically-proven 
reading programs, train K-2 teachers in proven teaching practices, 
implement effective reading interventions for students who are falling 
behind, and use a reading diagnostic test in K-2 to identify students 
early who have reading difficulties. Ensuring that children receive 
effective reading instruction means that more children will get the help 
they need before they fall too far behind, and will result in fewer 
referrals to special education in later years. The budget also includes 
$75 million for the Early Reading First initiative that helps implement 
research-based reading practices in existing pre-school and Head Start 
programs that feed into participating elementary schools. This program 
will help ensure that children enter school ready to learn to read.
  The budget proposes $2.6 billion in 2002, an increase of $0.4 billion 
above 2001, to prepare, train, and recruit a high-quality teaching 
force. States would have the flexibility to invest these funds to 
address their most pressing quality improvement needs, whether it be to 
alleviate shortages, enhance skills, or reform the certification 
process. The President's plan combines funding from the largest Federal 
teacher programs, including the Class Size Reduction program and 
Eisenhower Professional Development programs into a streamlined, 
performance-based grant to States and school districts.
   The Administration supports a streamlined educational technology fund 
that consolidates eight overlapping programs into one flexible $817 
million fund for 2002. The President believes that technology must be 
used to improve learning and that Federal funding for educational 
technology must focus on results. This performance-based formula grant 
will provide States greater discretion to make educational technology an 
effective learning tool, and ensure that more technology funds reach the 
classroom.
   In addition to these reforms, the Administration is seeking 
administrative improvements in the E-rate pro

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gram to ensure that this program provides greater flexibility to schools 
and libraries in how they use their E-rate discounts, while reducing the 
administrative burden they have faced in applying for educational 
technology funds. The E-rate program, or Education Rate, is administered 
by the Federal Communications Commission and provides discounts for 
schools and libraries to purchase high-speed Internet access, internal 
wiring, and telecommunications services. The Administration also 
proposes $80 million in matching grants, through the Department of 
Housing and Urban Development's Community Development Block Grant, to 
support Community Technology Centers in high poverty areas.
   A variety of other innovative programs to improve the educational 
development of the Nation's students is proposed, or expanded from 
previous funding levels.
     The budget provides $200 million for an expanded Math and 
          Science Partnership program, administered by the National 
          Science Foundation in coordination with the Department of 
          Education, in order for States to join with institutions of 
          higher education to strengthen K-12 math and science 
          instruction and curriculum.
     The Administration proposes to consolidate Bilingual 
          Education, Foreign Language Assistance, and Immigrant 
          Education funds into a $460 million formula-driven grant to 
          provide school districts with added flexibility in exchange 
          for more effective transitioning of Limited-English proficient 
          (LEP) students into English fluency and improving their 
          overall achievement levels. Funds will be distributed to 
          States based on their shares of LEP and immigrant students.
     The Administration requests $116 million to support formula 
          grants to local educational agencies and Bureau of Indian 
          Education (BIA)-operated schools to implement programs that 
          address the unique educational and cultural needs of Indian 
          children. This level of funding will also fund the second 
          cohort of Native American teachers through the American Indian 
          Teacher Corps Initiative and continue funding for the American 
          Indian Administrator Corps.
     The most direct form of accountability is a parent's 
          ability to choose the school his or her child will attend. The 
          Administration is committed to expanding the educational 
          choices that parents and students have. Under the new Choice 
          and Innovation fund, the Administration proposes to 
          consolidate ten programs to create a $471 million fund that 
          provides States with the flexibility to pursue a range of 
          effective education reform strategies and to address areas of 
          State and local need.
     The President's plan for improving school safety and drug-
          use prevention emphasizes research-based practices, includes 
          tougher enforcement of existing gun laws, grants teachers 
          control over their classrooms, improves cooperation between 
          school districts and law enforcement, and stresses 
          accountability for results. Under the $644 million Safe and 
          Drug Free Schools and Communities program, districts will be 
          held accountable for the effectiveness of their crime 
          prevention and drug outreach activities, and students trapped 
          in persistently dangerous schools will have the option to 
          transfer to a safer alternative.
     The Administration request includes $846 million for a more 
          flexible after-school program that allows States and school 
          districts to award Federal funds to private and faith-based 
          entities, thereby empowering local communities to provide a 
          wider array of choices for students and parents. Expanding 
          access to high-quality before- and after-school programs is a 
          key strategy in providing students safe and supervised 
          environments and extending learning time to improve student 
          achievement. States would conduct grant competitions to 
          support before and after-school programs that are proven to be 
          effective and advance statewide academic achievement goals.

             This program will be supplemented by a new $400 million 
          initiative in the Department of Health and Human Services for 
          After School Certificates within the Child Care and 
          Development Block Grant to help low income working parents 
          obtain quality after school childcare with a strong 
          educational component.
     The Administration requests $8.1 billion for 2002, $1.0 
          billion more than 2001, for three special education programs 
          that serve more than six million children with disabilities 
          from birth to age 21. This increased funding will further help 
          States and local school districts meet their obligations under 
          the Individuals with Disabilities Education Act.
     The budget proposes $1.1 billion for the Impact Aid 
          program, $137 million more than the 2001 appropriation. The 
          request provides a significant increase for the Impact Aid 
          construction program to improve the quality of public school 
          buildings and eliminate the backlog of repairs and 
          construction for schools on or near military facilities and 
          those serving children from Native American lands.

Training and Employment

   The budget reflects the Administration's continued support to reform 
the Nation's workforce development system and provide job training 
opportunities to help workers succeed in the economy of the 21st 
Century.
   The Workforce Investment Act (WIA) of 1998 took full effect on July 
1, 2000, as the Job Training Partnership Act was repealed and all States 
began to fully implement the WIA requirements. The WIA calls for a 
customer-driven job training system that: (1) streamlines services 
through One-Stop Career Centers; (2) empowers individuals with the 
information and resources they need to choose the training that is right 
for them; (3) provides universal access to a core set of employ

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ment services such as job search assistance; (4) increases 
accountability; (5) ensures a strong role for the private sector and the 
local boards who develop and oversee programs; (6) facilitate State and 
local flexibility; and (7) improve the quality of youth job training 
services. The budget proposes $5.1 billion for these activities, which 
does not equate with 2002 budget authority, which is distorted by 
advance appropriations. The budget proposes to reverse the misleading 
budget practice of using advance appropriations simply to avoid spending 
limitations.
  In order to enhance the employment prospects of individuals with 
disabilities, the budget includes $20 million for competitive grants to 
partnerships or consortia to provide new services and information for 
individuals with disabilities who want to return to work. These 
partnerships would work with the One-Stop system to augment its 
capabilities to provide timely and accurate information that people with 
disabilities need to get jobs and learn about the benefits available to 
them when they return to work. In addition, the partnerships would 
improve local service delivery by coordinating the State and local 
agencies and disability organizations that help individuals with 
disabilities prepare to enter or reenter the workforce.

Social Services

   The Head Start program gives low-income children a comprehensive 
approach to child development, stressing language and cognitive 
development, health, nutrition, and social competency. Head Start is 
administered by the Administration for Children and Families (ACF). The 
Administration requests $6.3 billion for Head Start, a $125 million 
increase over the 2001 level. In 2002, Head Start will serve 
approximately 916,000 children. Within the overall total of children 
served, approximately 55,000 children under age three will participate 
in the Early Head Start component. The Administration proposes to reform 
Head Start and return it to its original purpose--education. Head Start 
programs will be required to adopt a proven core curriculum that makes 
school readiness--pre-reading and numeracy--its top priority. The budget 
includes an Early Reading First program within the Department of 
Education for research-based reading programs in existing pre-school 
programs, including Head Start programs. Planning is also underway to 
move Head Start to the Department of Education to reinforce the emphasis 
on school readiness.
   This budget requests $1.7 billion in budget authority for the Social 
Services Block Grant (SSBG). This program provides flexible funds to 
States for social services for low-income individuals and families.

Income Support

   Food and nutrition assistance.--This budget requests $9.9 billion in 
budget authority for grants for the National School Lunch and School 
Breakfast Programs, which provide free or low-cost nutritious meals to 
children in participating schools. In 2002, the programs will serve an 
estimated 28.0 million lunches and 8.4 million breakfasts daily. By 
2005, the program aims to reduce the average percent of calories from 
saturated fat in school lunches to 10 percent, down from 12 percent in 
1998-1999. The Special Supplemental Nutrition Program for Women, 
Infants, and Children (WIC) provides vouchers for nutritious 
supplemental food packages, nutrition education and counseling, and 
health and immunization referrals to low-income women, infants, and 
children. The program reached an average of nearly 7.2 million people 
each month in 2000. Participation in 2001 is projected to exceed 7.2 
million women, infants, and children monthly, and the budget proposes 
$4.1 billion, an increase of $94 million, to serve 7.25 million people 
monthly in 2002.
   Other income security.--The Child Care and Development Fund provides 
grants to States for the purposes of providing low-income families with 
financial assistance for child care, improving the quality and 
availability of child care, and establishing, expanding, or conducting 
early childhood development programs and before- and after-school 
programs. In 2000, Federal child care funding provided child care 
services for approximately 1.8 million children from low-income working 
families or whose parents are moving from welfare to work. The budget 
proposes a new $400 million after school certificate program within the 
Child Care and Development Block Grant, raising the total request to 
$2.2 billion in budget authority. The new program would provide grants 
to States to assist up to 500,000 parents in obtaining after-school 
child care with a high-quality education focus.

Health

   This budget proposes $164.0 billion in outlays for 2002 grants to 
State and local governments for health, $22.2 billion more than for 
2001.

   Immediate Helping Hand (IHH).--The Immediate Helping Hand initiative 
provides critical assistance to our Nation's most vulnerable senior 
citizens for the cost of their prescription drugs. This budget provides 
$46.0 billion for 2001-2005 to States to help low-income Medicare 
beneficiaries pay for their prescriptions. This proposal builds on 
coverage that is already in place in more than half the States and would 
provide benefits to 9.5 million vulnerable Medicare beneficiaries who 
currently do not have any other prescription drug coverage. The plan is 
unique because needy seniors will be able to get help with their 
prescription drug costs this year.
   Medicaid.--Medicaid is the largest grant program, with outlays 
projected to be $142.4 billion in 2002, including the changes proposed 
in this budget. This Federal-State health care program served about 33.4 
million low-income Americans in 2000. The Federal Government spent 
$117.9 billion, 57 percent of the total, on the program in 2000 while 
States spent $88.9 billion, or 43 percent. Medicaid covers a fourth of 
the Nation's

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children and is the largest single purchaser of maternity care as well 
as of nursing home services and other long-term care services. The 
program covers almost two-thirds of nursing home residents. The elderly 
and disabled made up a third of Medicaid enrollees in 2000, but 
accounted for approximately two-thirds of spending on benefits. Medicaid 
serves at least half of all adults living with AIDS (and up to 90 
percent of children with AIDS), and is the largest single payer of 
direct medical services to adults living with AIDS. Medicaid pays for 
over one-third of the Nation's long-term care services. Medicaid spends 
more on institutional care today than it does for home and community-
based care, but the mix of payments is expected to be almost equal in 10 
years.
  Current restrictions and requirements in the Medicaid program may be 
inhibiting the ability of States to operate the program efficiently. In 
addition to taking steps to further address the Medicaid ``upper payment 
limit'' loophole, the Administration plans to consult with the States on 
the development of ideas to increase State flexibility, control Medicaid 
costs, and ensure the fiscally prudent management of the Medicaid 
program.

  State Children's Health Insurance Program.--The State Children's 
Health Insurance Program (S-CHIP) was established in 1997 in the 
Balanced Budget Act to provide $24 billion over five years for States to 
expand health insurance coverage to low-income, uninsured children. S-
CHIP provides States with broad flexibility in program design while 
protecting beneficiaries through basic Federal standards. In 2000, 3.3 
million children were enrolled in S-CHIP, which is a 70 percent increase 
over 1999 enrollment.
   Other health.--This budget requests Federal spending for certain 
public health programs that assist State and local governments in 
increasing access to health care by increasing the number of community 
health center sites and addressing heart disease, diabetes, and 
childhood obesity. The budget includes a Community and Migrant Health 
Center Initiative to increase access to health care by increasing the 
number of community health center sites by 1,200 over five years. In 
2002, the number of health center sites will increase by almost 100. The 
Administration proposes $1.3 billion in 2002 for this effort, an 
increase of $124 million over 2001. The Administration also proposes the 
Healthy Communities Innovation Fund Initiative, which supports grants 
that will make available approximately $400 million within existing 
grant activities to target innovative solutions in areas of health risks 
such as heart disease, adult and childhood Type II diabetes, and 
childhood obesity.

Natural Resources and Environment

  The Administration requests $900 million from the Land and Water 
Conservation Fund (LWCF) to acquire and conserve lands in national 
parks, forests, refuges, and public lands, and provide grants to States 
for broad conservation and outdoor recreation purposes. The National 
Park Service (NPS) requests $450 million in budget authority for 2002 
for LWCF matching grants to States in support of State and local 
conservation and outdoor recreation efforts. In 2002, two new programs 
are proposed that would establish positive incentives for private 
landowners and local communities to protect imperiled species and 
restore habitat: $50 million in matching grants to help States establish 
Landowner Incentive Programs to help private landowners protect 
imperiled species, and $10 million to establish a Private Stewardship 
Grant Program to provide funding for private conservation initiatives.
   The budget assists State and local governments to add 400 miles of 
recreational trails, 850 miles of recreational river corridors, and 
169,000 acres of recreational parkland, through the LWCF State grants 
and NPS partnerships. In addition, the States and Tribes would receive 
$1.1 billion in grants in 2002, the highest level ever, to administer 
delegated programs and other responsibilities pursuant to Environmental 
Protection Agency (EPA) statutes. Included in this total is $25 million 
in new funding for State enforcement programs, reflecting a shift in 
enforcement responsibilities in delegated States from Federal 
enforcement to expanded State enforcement. The total also includes $25 
million in grant funding to help States better integrate their 
environmental information systems.
   Funding is provided for EPA State Wastewater Grants to fund the Clean 
Water State Revolving Funds at $850 million and the newly authorized 
Sewer Overflow Control Grant program at $450 million. The EPA Drinking 
Water State Revolving Fund is funded at $823 million.

Administration of Justice

   The Administration requests $4.3 billion in budget authority for 2002 
to help State and local governments fight crime, including $567 million 
to assist crime victims and $154 million in Department of Justice 
initiatives to help State and local governments protect young people 
from gun-related violence. As part of the U.S. Attorney's Project 
Sentry, $20 million in grants will be available to help establish 
partnerships for reducing youth gun violence. The budget also proposes 
$50 million for grants to encourage States to get tough on gun criminals 
with increased arrests, prosecutions, and public awareness campaigns. In 
addition, $75 million will be allocated to Project ChildSafe, a new 
Federal, State and local partnership to ensure that child safety locks 
are made available for every handgun in America. As part of the 
Administration's broader strategy for reducing the supply and demand for 
drugs, $50 million is proposed for a new grant program within the Office 
of Justice Programs to aid counties along the Southwest Border with the 
costs of detaining and prosecuting drug cases referred to them by U.S. 
Attorneys. To combat the significant problem of violence against women, 
the budget proposes $391 million, an increase of $103 mil

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lion over 2001, to fund both existing and new programs authorized in the 
Violence Against Women Act of 2000.
   This budget proposes to reduce a number of Department of Justice 
State and local assistance programs from their 2001 level, mainly those 
that have already served their primary purpose or are less essential to 
core Federal law enforcement objectives. These reductions include a net 
reduction of $182 million in the Community Oriented Policing Services 
program, which has well exceeded its initial goal of funding 100,000 new 
officers; $451 million from State Prison Grants, which have accomplished 
their goal of encouraging State ``truth in sentencing'' policies; $299 
million from the State Criminal Alien Assistance Program, which 
contributes little to reducing violent crime; $122 million from Local 
Law Enforcement Block Grants, which fund areas covered by other Justice 
programs; and elimination of the $69 million Byrne discretionary grant 
program, whose competitive procedures have been eroded by legislative 
mandates.

Transportation

   The Administration requests $45.0 billion in budgetary authority in 
2002 for grants to State and local governments to assist with 
transportation infrastructure and related programs, including highways, 
transit, airports and other areas.

   Highways and Transit.--The budget requests $31.6 billion in budgetary 
resources in 2002 for the Federal-aid highways program to maintain and 
improve surface transportation infrastructure. Within this program, 
competitive matching grants are funded at $100 million and pilot 
programs are funded at $45 million, to promote access to alternative 
methods of transportation, a new initiative to expand transportation 
options for people with disabilities.
   In addition, the budget requests $212 million in budget authority for 
highway traffic safety grants to increase seat belt use, decrease 
alcohol related fatalities, and improve State safety data. The budget 
includes $210 million for grants to States to enforce Federal and State 
standards for commercial motor vehicle safety inspections, traffic 
enforcement, and compliance reviews. This budget requests $6.6 billion 
in budgetary resources for 2002 to assist State and local governments 
with mass transit.

  Airports.--The budget requests $3.3 billion in budgetary resources in 
2002 for the Airport Improvement Program (AIP), which will enhance the 
Nation's airport system through increasing safety and security, reducing 
system delays and providing new capacity to meet anticipated demands.

Community and Regional Development

   Community development.--Community Development Block Grants (CDBG) 
provide funds for various community development activities directed 
primarily at low-and moderate-income persons. This budget requests $4.7 
billion in budget authority for 2002 in CDBG grants for improving 
housing, public works and services, promoting economic development, and 
acquiring or clearing land. The University Partnerships Program, a set-
aside within CDBG, provides grants to academic institutions including 
Historically Black Colleges and Universities, Hispanic Serving 
Institutions, and Tribal Colleges. The Indian CDBG, also a set- aside 
within the CDBG program, focuses mainly on public infrastructure, 
community facilities, and economic development on reservations.
   The Department of Commerce's Economic Development Administration 
(EDA) provides assistance to communities to help build capacity and 
address long-term economic challenges through its nationwide program 
delivery network. EDA's public works grants help build or expand public 
facilities to stimulate industrial and commercial growth, such as 
industrial parks, business incubators, access roads, water and sewer 
lines, and port and terminal developments. EDA also assists communities 
in addressing sudden and severe economic downturns and in adjusting to 
downsizing and closure of defense facilities. The President's budget 
requests $335 million of budget authority for EDA grants and targets 40 
percent of EDA grants to areas of highest distress nationwide in 2002. 
The budget also proposes $165 million in grant funding and tax 
incentives for Empowerment Zones (EZs) to carry out 10-year, community-
wide strategic plans to revitalize designated areas.

   Area and regional development.--The budget provides flexible funding 
to meet the needs of rural areas through the Rural Community Advancement 
Program (RCAP). RCAP provides grants, loans, and loan guarantees to 
stimulate economic development, help build rural community facilities, 
such as health clinics, day care centers as well as water and wastewater 
systems. Under RCAP, States have increased flexibility within the three 
funding streams for Water and Wastewater, Community Facilities, and 
Business and Industry. USDA State Directors have the authority to 
transfer up to 25 percent of the funding among any of these programs to 
tailor RCAP assistance to the specific rural economic development needs 
of individual States. The budget proposes $2.9 billion in loans and 
grants for RCAP.
   To fulfill the Federal government's commitments to the District of 
Columbia under the Revitalization Act, the Administration's budget 
provides $494 million for District courts and corrections, including 
$201 million to house the District's sentenced felon population, $147 
million for the Court Services and Offender Supervision Agency, and $146 
million for the DC Courts. In addition, the budget provides $17 million 
to continue the District's Tuition Assistance Grant Program.

Other Functions

   Discussions of these and other Federal aid programs can be found in 
the main budget volume in Section III, and elsewhere. As noted earlier, 
a detailed listing

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of budget authority and outlays for all grants to State and local 
governments is in Table 9-3 in this chapter.

                         HISTORICAL PERSPECTIVES

   In recent decades, Federal aid to State and local governments has 
become a major factor in the financing of certain government functions. 
The rudiments of the present system date back to the Civil War. The 
Morrill Act, passed in 1862, established the land grant colleges and 
instituted certain federally-required standards for States that received 
the grants, as is characteristic of the present grant programs. Federal 
aid was later initiated for agriculture, highways, vocational education 
and rehabilitation, forestry, and public health. In the depression 
years, Federal aid was extended to meet income security and other social 
welfare needs. However, Federal grants did not become a significant 
factor in Federal Government expenditures until after World War II.
   Table 9-2 displays trends in Federal grants to State and local 
governments since 1960. Section A shows Federal grants by function. 
Functions with a substantial amount of grants are shown separately. 
Grants for the national defense, energy, and the veterans benefits and 
services functions are combined in the ``other functions'' line in the 
table.

   Federal grants for transportation increased to $3.0 billion, or 43 
percent of all Federal grants, in 1960 after initiation of aid to States 
to build the Interstate Highway System in the late 1950s.
   By 1970 there had been significant increases in the relative amounts 
for education, training, employment, social services, and health 
(largely Medicaid).
   In the early and mid-1970s, major new grants were created for natural 
resources and environment (construction of sewage treatment plants), 
community and regional development (community development block grants), 
and general government (general revenue sharing).
   Since the late 1970s changes in the relative amounts among functions 
reflect steady growth of grants for health (Medicaid) and income 
security and restraint in most other areas. The functions with the 
largest amount of grants are health; income security; education, 
training, employment, and social services; and transportation, with 
combined estimated grant outlays of $325.4 billion or 93 percent of 
total grant outlays in 2002.
   The increase in total outlays for grants overall since 1990 has been 
driven by increases in grants for health, which more than tripled from 
$43.9 billion in 1990 to an estimated $164.0 billion in 2002. The income 
security; education, training, employment, and social services; and 
transportation functions also increased substantially, but at a slower 
rate than the increase for health.
   Section B of the Table shows the distribution of grants divided into 
mandatory and discretionary spending.
   Funding for grant programs classified as mandatory occurs in 
authorizing legislation. Funding levels for mandatory programs can only 
be changed by changing eligibility criteria or benefit formulas 
established in law and are usually not limited by the annual 
appropriations process. Outlays for mandatory grant programs are 
estimated to be $212.0 billion in 2002. The three largest mandatory 
grant programs are Medicaid, with estimated outlays of $142.4 billion in 
2002, temporary assistance for needy families, $17.3 billion in 2002, 
and food stamp grants for State administration and child nutrition 
programs, with combined outlays of $13.9 billion in 2002.
   The funding level for discretionary grant programs is subject to 
approval by Congress annually through appropriations acts. Outlays for 
discretionary grant programs are estimated to be $138.1 billion in 2002. 
Table 9-3 at the end of this chapter identifies discretionary and 
mandatory grant programs separately. For more information on the Budget 
Enforcement Act and these categories, see Chapter 24 ``Budget System and 
Concepts and Glossary'' in this volume.
   Section C of Table 9-2 shows the composition of grants divided into 
three major categories: payments for individuals, grants for physical 
capital, and other grants \2\ Grant outlays for payments for 
individuals, which are mainly entitlement programs in which the Federal 
Government and the States share the costs, have grown significantly as a 
percent of total grants. They increased from 55.9 percent of the total 
in 1990 to 62.2 percent of the total in 2000. While payments for 
individuals will comprise 63.6 percent of grants in 2002, they are 
estimated to increase to an estimated 66.0 percent of the total by 2006.
---------------------------------------------------------------------------
  \2\ Certain housing grants are classified in the budget as both 
payments for individuals and physical capital spending. In the text and 
tables in this section, these grants are included in the category for 
physical capital spending.
---------------------------------------------------------------------------
   These grants are distributed through State or local governments to 
provide cash or in-kind benefits that constitute income transfers to 
individuals or families. The major grant in this category is Medicaid, 
which had outlays of $117.9 billion in 2000, increasing to an estimated 
$142.4 billion in 2002. Temporary assistance for needy families, food 
stamps, child nutrition programs, and housing assistance are also large 
grants in this category.
   Grants for physical capital assist States and localities with 
construction and other physical capital activities. The major capital 
grants are for highways, but there are also grants for airports, mass 
transit, sewage treatment plant construction, community development, and 
other facilities. Grants for physical capital were almost half of total 
grants in 1960, shortly after grants began for construction of the 
Interstate Highway System. The relative share of these outlays has 
declined, as pay

[[Page 202]]

                                                               Table 9-2.  TRENDS IN FEDERAL GRANTS TO STATE AND LOCAL GOVERNMENTS
                                                                              (Outlays; dollar amounts in billions)
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                        Actual                                                                 Estimate
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
                                                   1960     1965     1970     1975     1980     1985      1990      1995      2000      2001      2002      2003      2004      2005      2006
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
A. Distribution of grants by function:
   Natural resources and environment...........      0.1      0.2      0.4      2.4      5.4       4.1       3.7       4.0       4.6       5.1       5.1       5.1       5.2       5.2       5.1
   Agriculture.................................      0.2      0.5      0.6      0.4      0.6       2.4       1.3       0.8       0.7       0.8       0.8       0.8       0.8       0.8       0.8
   Transportation..............................      3.0      4.1      4.6      5.9     13.0      17.0      19.2      25.8      32.2      35.3      38.3      40.2      41.8      43.6      44.9
   Community and regional development..........      0.1      0.6      1.8      2.8      6.5       5.2       5.0       7.2       8.7       8.7       9.0       9.0       8.7       8.6       8.3
   Education, training, employment, and social       0.5      1.1      6.4     12.1     21.9      17.8      23.4      34.1      42.1      46.8      51.8      56.7      58.1      59.6      61.2
           services............................
   Health......................................      0.2      0.6      3.8      8.8     15.8      24.5      43.9      93.6     124.8     141.8     164.0     177.0     192.6     196.9     208.9
   Income security.............................      2.6      3.5      5.8      9.4     18.5      27.2      35.2      55.1      63.2      69.6      71.3      73.5      75.3      77.0      78.6
   Justice.....................................      ---      ---        *      0.7      0.5       0.1       0.6       1.2       5.1       4.5       6.0       7.5       5.4       4.5       4.5
   General government..........................      0.2      0.2      0.5      7.1      8.6       6.8       2.3       2.3       2.3       2.7       2.6       2.6       3.8       2.6       2.7
   Other.......................................        *      0.1      0.1      0.2      0.7       0.8       0.8       0.8       0.9       0.9       1.1       1.2       1.2       1.2       1.2
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
     Total.....................................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     316.3     350.1     373.6     392.9     400.0     416.2

B. Distribution of Grants by BEA Category:
   Discretionary...............................       NA      2.9     10.2     21.0     53.3      55.5      63.3      94.0     116.7     127.1     138.1     146.5     147.4     150.1     153.1
   Mandatory...................................       NA      8.0     13.9     28.8     38.1      50.4      72.0     131.0     168.0     189.2     212.0     227.1     245.5     249.8     263.1
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
     Total.....................................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     316.3     350.1     373.6     392.9     400.0     416.2

C. Composition:
   Current dollars:............................
     Payments for individuals \1\..............      2.5      3.7      8.7     16.8     32.6      49.3      75.7     141.2     177.1     199.4     222.6     237.9     255.3     261.2     274.6
     Physical capital \1\......................      3.3      5.0      7.1     10.9     22.6      24.9      27.2      39.6      48.7      52.9      56.3      57.5      59.0      60.7      62.1
     Other grants..............................      1.2      2.2      8.3     22.2     36.2      31.6      32.5      44.2      58.9      63.9      71.1      78.3      78.7      78.1      79.5
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
       Total...................................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     316.3     350.1     373.6     392.9     400.0     416.2

   Percentage of total grants:
     Payments for individuals \1\..............    35.3%    34.1%    36.2%    33.6%    35.7%     46.6%     55.9%     62.8%     62.2%     63.1%     63.6%     63.7%     65.0%     65.3%     66.0%
     Physical capital \1\......................    47.3%    45.7%    29.3%    21.9%    24.7%     23.5%     20.1%     17.6%     17.1%     16.7%     16.1%     15.4%     15.0%     15.2%     14.9%
     Other grants..............................    17.4%    20.2%    34.5%    44.5%    39.6%     29.9%     24.0%     19.7%     20.7%     20.2%     20.3%     20.9%     20.0%     19.5%     19.1%
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
      Total....................................   100.0%   100.0%   100.0%   100.0%   100.0%    100.0%    100.0%    100.0%    100.0%    100.0%    100.0%    100.0%    100.0%    100.0%    100.0%

  Constant (FY 1996) dollars:
    Payments for individuals \1\...............     11.3     15.9     31.7     45.4     60.2      69.7      88.9     144.1     165.0     180.5     196.6     204.7     214.3     213.9     219.5
     Physical capital \1\......................     15.8     22.4     25.2     23.9     36.1      31.8      30.3      40.4      45.5      47.9      49.5      49.2      49.0      49.1      48.8
     Other grants..............................      8.3     12.8     36.1     67.2     72.2      45.5      38.7      45.3      52.1      54.8      59.3      63.4      62.0      59.8      59.2
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
       Total...................................     35.3     51.2     92.9    136.5    168.5     147.0     157.9     229.8     262.5     283.2     305.4     317.3     325.4     322.8     327.4

D. Total grants as a percent of:
   Federal outlays:
     Total.....................................     7.6%     9.2%    12.3%    15.0%    15.5%     11.2%     10.8%     14.8%     15.9%     17.0%     17.9%     18.5%     18.9%     18.4%     18.7%
     Domestic programs \2\.....................    18.0%    18.3%    23.2%    21.7%    22.2%     18.2%     17.1%     21.6%     22.0%     22.9%     23.6%     24.0%     24.1%     23.3%     23.3%
   State and local expenditures................    19.2%    20.1%    24.1%    27.1%    30.4%     24.2%     21.0%     25.1%     24.7%       N/A       N/A       N/A       N/A       N/A       N/A
   Gross domestic product......................     1.4%     1.6%     2.4%     3.2%     3.3%      2.6%      2.4%      3.1%      2.9%      3.1%      3.2%      3.3%      3.3%      3.1%      3.1%

E. As a share of total State and local gross
 investment:
   Federal capital grants......................    24.6%    25.5%    25.4%    25.9%    35.4%     30.2%     21.9%     25.8%     21.4%       N/A       N/A       N/A       N/A       N/A       N/A
  State and local own-source financing.........    75.4%    74.5%    74.6%    74.1%    64.6%     69.8%     78.1%     74.2%     78.6%       N/A       N/A       N/A       N/A       N/A       N/A
                                                ------------------------------------------------------------------------------------------------------------------------------------------------
     Total.....................................   100.0%   100.0%   100.0%   100.0%   100.0%    100.0%    100.0%    100.0%    100.0%       N/A       N/A       N/A       N/A       N/A       N/A
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
N/A = Not available.
* 50 million or less.
\1\ Grants that are both payments for individuals and capital investment are shown under capital investment.
\2\ Excludes national defense, international affairs, net interest, and undistributed offsetting receipts.

ments for individuals have grown. In 2002, grants for physical capital 
are estimated to be 16.1 percent of total grants.
   The other grants are primarily for education, training, employment, 
and social services. These grants increased to 44.5 percent of total 
grants by 1975, and are projected to be 20.3 percent of total grants in 
2002.
   Section C of Table 9-2 also shows these three categories in constant 
dollars. In constant 1996 dollars, total grants increase from $157.9 
billion in 1990 to an estimated $305.4 billion in 2002, an average 
increase of 5.7 percent per year. During this same period, grants for 
payments to individuals are estimated to increase an average of 6.8 
percent per year; grants

[[Page 203]]

for physical capital an average of 4.2 percent per year, and other 
grants an average of 3.6 percent per year.
   The real growth in grants during the 1990s is in contrast to the 
1980s. During the period between 1980 and 1990, outlays for total grants 
in constant 1996 dollars decreased from $168.5 billion in 1980 to $157.9 
billion in 1990.
   Section D of this table shows grants as a percentage of Federal 
outlays, State and local expenditures, and gross domestic product. 
Grants have increased as a percentage of total Federal outlays from 10.8 
percent in 1990 to an estimated 17.9 percent in 2002. Grants as a 
percentage of domestic spending are estimated to be 23.6 percent in 
2002.
   As a percentage of total State and local expenditures, grants have 
increased from 21.0 percent in 1990 to 24.7 percent in 2000.
   Section E shows the relative contribution of physical capital grants 
in assisting States and localities with gross investment. After a slight 
increase to 25.8 percent in 1995, Federal capital grants have declined 
to be 21.4 percent of State and local gross investment in 2000.

     OTHER INFORMATION ON FEDERAL AID TO STATE AND LOCAL GOVERNMENTS

   Additional information regarding aid to State and local governments 
can be found elsewhere in this budget and in other documents.
   Major public physical capital investment programs providing Federal 
grants to State and local governments are identified in Chapter 6, 
``Federal Investment Spending and Capital Budgeting.''
   Data for summary and detailed grants to State and local governments 
can be found in many sections of a separate document entitled Historical 
Tables. Section 12 of that document is devoted exclusively to grants to 
State and local governments. Additional information on grants can be 
found in Section 6 (Composition of Federal Government Outlays); Section 
9 (Federal Government Outlays for Investment: Major Physical Capital, 
Research and Development, and Education and Training); Section 11 
(Federal Government Payments for Individuals); and Section 15 (Total 
(Federal and State and Local) Government Finances).
   In addition to these sources, a number of other sources of 
information are available that use slightly different concepts of 
grants, provide State-by-State information, provide information on how 
to apply for Federal aid, or display information about audits.
   Government Finances, published annually by the Bureau of the Census 
in the Department of Commerce, provides data on public finances, 
including Federal aid to State and local governments.
   The Survey of Current Business, published monthly by the Bureau of 
Economic Analysis in the Department of Commerce, provides data on the 
national income and product accounts (NIPA), a broad statistical concept 
encompassing the entire economy. These accounts include data on Federal 
grants to State and local governments. Data using the NIPA concepts 
appear in this volume in Chapter 16, ``National Income and Product 
Accounts.''
   The Budget Information for States (BIS) report provides estimates of 
State-by-State funding allocations for the largest formula grant 
programs for the past, present, and budget year. These programs comprise 
approximately 85 percent of total Federal aid to State and local 
governments. The document is prepared by the Office of Management and 
Budget soon after the Budget is released.
   Federal Aid to States, a report prepared by the Bureau of the Census, 
shows Federal spending by State for grants for the most recently 
completed fiscal year.
   The Consolidated Federal Funds Report is an annual document that 
shows the distribution of Federal spending by State and county areas and 
by local governmental jurisdictions. It is released by the Bureau of the 
Census in the Spring.
   The Federal Assistance Awards Data System (FAADS) provides 
computerized information about current grant funding. Data on all direct 
assistance awards are provided quarterly by the Bureau of the Census to 
the States and to the Congress.
   The Catalog of Federal Domestic Assistance is a primary reference 
source for communities wishing to apply for grants and other domestic 
assistance. The Catalog is prepared by the General Services 
Administration with data collected by the Office of Management and 
Budget and is available from the Government Printing Office. The basic 
edition of the Catalog is usually published in June and an update is 
generally prepared in December. It contains a detailed listing of grant 
and other assistance programs; discussions of eligibility criteria, 
application procedures, and estimated obligations; and related 
information.
   The Federal Audit Clearinghouse maintains an on-line database (http:/
/harvester.census.gov/sac) that provides access to summary information 
about audits conducted under OMB Circular A-133, ``Audits to States, 
Local Governments, and Non-Profit Organizations.'' Information is 
available for each audited entity, including the amount of Federal money 
expended by program and whether there were audit findings.

                       DETAILED FEDERAL AID TABLE

   Table 9-3, ``Federal Grants to State and Local Governments-Budget 
Authority and Outlays,'' provides detailed budget authority and outlay 
data for grants. This table displays discretionary and mandatory grant 
programs separately.

[[Page 204]]



             Table 9-3. FEDERAL GRANTS TO STATE AND LOCAL GOVERNMENTS--BUDGET AUTHORITY AND OUTLAYS
                                            (in millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                            Budget Authority                             Outlays
Function, Category, Agency and ---------------------------------------------------------------------------------
            Program                 2000         2001          2002          2000         2001          2002
                                  Actual      Estimate      Estimate       Actual      Estimate      Estimate
----------------------------------------------------------------------------------------------------------------
       NATIONAL DEFENSE
Discretionary:
  Department of Defense--
   Military:
    Research, Development,
     Test, and Evaluation:
      Research, development,             2             2        2                 2             2             2
       test, and evaluation,
       Army...................
                               ---------------------------------------------------------------------------------
      Total, discretionary....           2             2        2                 2             2             2
                               ---------------------------------------------------------------------------------
        Total, national                  2             2        2                 2             2             2
         defense..............
                               =================================================================================
            ENERGY
Discretionary:
  Department of Energy:
    Energy Programs:
      Energy conservation.....         169           190      311               124           166           313
                               ---------------------------------------------------------------------------------
      Total, discretionary....         169           190      311               124           166           313
                               =================================================================================
Mandatory:
  Tennessee Valley Authority:
    Tennessee Valley Authority         309           313      328               309           313           328
     fund.....................
                               ---------------------------------------------------------------------------------
      Total, mandatory........         309           313      328               309           313           328
                               ---------------------------------------------------------------------------------
        Total, energy.........         478           503      639               433           479           641
                               =================================================================================
     NATURAL RESOURCES AND
          ENVIRONMENT
Discretionary:
  Department of Agriculture:
    Natural Resources
     Conservation Service:
      Resource conservation     ...........  ............  ............           1             1   ............
       and development........
      Watershed and flood               44            52       28                66            62            79
       prevention operations..
    Forest Service:
      State and private                100           203      121                98           178           143
       forestry...............
      Management of national    ...........            6        5                 1             6             5
       forest lands for
       subsistence uses.......
  Department of Commerce:
    National Oceanic and
     Atmospheric
     Administration:
      Operations, research,            120           135        5                91           101             3
       and facilities.........
      Pacific coastal salmon            58           110      110                 1           167           110
       recovery...............
  Department of the Interior:
    Office of Surface Mining
     Reclamation and
     Enforcement:
      Regulation and                    61            51       51                54            51            57
       technology.............
      Abandoned mine                   181           196      154               152           153           120
       reclamation fund.......
    Bureau of Reclamation:
      Bureau of Reclamation             12            12        7                10            17             7
       loan subsidy...........
    United States Geological
     Survey:
      Surveys, investigations   ...........            3   ............  ...........            3   ............
       and research...........
    United States Fish and
     Wildlife Service:
      Commercial salmon                  5   ............  ............  ...........            5   ............
       fishery capacity
       reduction..............
      State wildlife grants...  ...........           50   ............  ...........            8            10
      Land acquisition........  ...........  ............      60        ...........  ............           24
      Cooperative endangered            23           105       55                13            27            63
       species conservation
       fund...................
      Wildlife conservation              1             1   ............           1             1   ............
       and appreciation fund..
      Miscellaneous permanent            2             3        3                 2             2             3
       appropriations.........
    National Park Service:
      Urban park and            ...........           29   ............           1             3             6
       recreation fund........
      National recreation and            2   ............  ............           1             1   ............
       preservation...........
      Land acquisition and              43            90      450                 7            51            22
       State assistance.......
      Historic preservation             75            94       37                52           106            74
       fund...................
  Environmental Protection
   Agency:
    State and tribal                 3,446         3,621    3,289             3,192         3,393         3,533
     assistance grants........
    Hazardous substance                287           171      171               240           141           170
     superfund................
    Leaking underground                 59            64       62                58            61            64
     storage tank trust fund..
                               ---------------------------------------------------------------------------------
      Total, discretionary....       4,519         4,996    4,608             4,041         4,538         4,493
                               =================================================================================

[[Page 205]]


Mandatory:
  Department of the Interior:
    Bureau of Land Management:
      Miscellaneous permanent            7            12       13                 2            12            13
       payment accounts.......
    Minerals Management
     Service:
      National forests fund,             3             5        5                 3             5             5
       Payment to States......
      Leases of lands acquired           1             2        2                 1             2             2
       for flood control,
       navigation, and allied
       purposes...............
    United States Fish and
     Wildlife Service:
      Federal aid in wildlife          226           287      240               232           216           233
       restoration............
      Sport fish restoration..         303           301      352               285           295           311
    Departmental Management:
      Everglades watershed      ...........  ............  ............          25            17   ............
       protection.............
      Everglades restoration             1             2   ............           1             2             2
       account................
  Department of the Treasury:
    Financial Management
     Service:
      Payment to terrestrial             5             5        5                 5             5             5
       wildlife habitat
       restoration trust fund.
                               ---------------------------------------------------------------------------------
      Total, mandatory........         546           614      617               554           554           571
                               ---------------------------------------------------------------------------------
        Total, natural               5,065         5,610    5,225             4,595         5,092         5,064
         resources and
         environment..........
                               =================================================================================
          AGRICULTURE
Discretionary:
  Department of Agriculture:
    Departmental
     Administration:
      Outreach for socially              3             3        3                 4             3             3
       disadvantaged farmers..
    Cooperative State
     Research, Education, and
     Extension Service:
      Extension activities....         424           433      413               437           421           460
      Research and education           238           268      240               224           265           240
       activities.............
      Integrated activities...          14            15       15        ...........            6            11
    Agricultural Marketing
     Service:
      Payments to States and             1             1        1                 1             1             1
       possessions............
    Farm Service Agency:
      State mediation grants..           3             3        3                 3             2             2
                               ---------------------------------------------------------------------------------
      Total, discretionary....         683           723      675               669           698           717
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Office of the Secretary:
      Fund for rural America..          20            10       15                11             8            11
    Farm Service Agency:
      Commodity Credit                  44           136      109                44           136           109
       Corporation fund.......
                               ---------------------------------------------------------------------------------
      Total, mandatory........          64           146      124                55           144           120
                               ---------------------------------------------------------------------------------
        Total, agriculture....         747           869      799               724           842           837
                               =================================================================================
  COMMERCE AND HOUSING CREDIT
Mandatory:
  Department of Commerce:
    National Oceanic and
     Atmospheric
     Administration:
      Promote and develop                1             5        5                 3             6             5
       fishery products and
       research pertaining to
       American fisheries.....
                               ---------------------------------------------------------------------------------
      Total, mandatory........           1             5        5                 3             6             5
                               ---------------------------------------------------------------------------------
        Total, commerce and              1             5        5                 3             6             5
         housing credit.......
                               =================================================================================
        TRANSPORTATION
Discretionary:
  Department of
   Transportation:
    Coast Guard:
      Boat safety.............  ...........  ............  ............           9             1   ............
    Federal Aviation
     Administration:
      Grants-in-aid for              2,799         2,623    2,969             1,578         2,173         2,764
       airports (Airport and
       airway trust fund) \1\.
      Research, engineering             46            48       50                46            48            50
       and development
       (Airport and airway
       trust fund)............

[[Page 206]]


    Federal Highway
     Administration:
      State infrastructure      ...........  ............  ............          19             8             8
       banks..................
      Appalachian development   ...........  ............  ............         101            79            43
       highway system.........
      Highway-related safety    ...........  ............  ............           1             1   ............
       grants.................
      Appalachian development   ...........          254   ............  ...........           69           104
       highway system (Highway
       trust fund)............
      Federal-aid highways \1\      28,860        33,158   34,098            23,494        25,027        27,194
      Miscellaneous             ...........          605   ............         133           254           320
       appropriations.........
      Miscellaneous highway     ...........        1,182   ............          42           354           510
       trust funds............
    Federal Motor Carrier
     Safety Administration:
      National motor carrier           105           177      205                99           134           185
       safety program \1\.....
      Motor carrier safety \1\  ...........  ............       5        ...........  ............            4
    National Highway Traffic
     Safety Administration:
      Highway traffic safety           197           202      212               181           210           217
       grants \1\.............
    Federal Railroad
     Administration:
      Emergency railroad        ...........  ............  ............           3             4   ............
       rehabilitation and
       repair.................
      Local rail freight        ...........  ............  ............           1   ............  ............
       assistance.............
      Alaska railroad                   15            30   ............          11            52            18
       rehabilitation.........
      Railroad research and              2             3        3                 1             2             2
       development............
      Conrail commuter          ...........  ............  ............           3             3   ............
       transition assistance..
    Federal Transit
     Administration:
      Research, training, and   ...........  ............  ............  ...........            2   ............
       human resources........
      Job access and reverse            75           100      125                17            45            65
       commute grants \1\.....
      Interstate transfer       ...........  ............  ............           1             5             2
       grants-transit.........
      Washington Metropolitan   ...........  ............  ............         109           107            71
       Area Transit Authority.
      Formula grants \1\......       4,641         3,287    3,592             2,792         3,216         3,191
      Capital investment             2,492         2,694    2,841             1,071           961         1,572
       grants \1\.............
      Transit planning and             138            90       90                72            98           114
       research \1\...........
      Discretionary grants      ...........  ............  ............       1,200           983           614
       (Highway trust fund,
       mass transit account)..
    Research and Special
     Programs Administration:
      Pipeline safety.........          15            21       18                13            17            17
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\      39,385        44,474   44,208            30,997        33,853        37,065
                               =================================================================================
Mandatory:
  Department of
   Transportation:
    Federal Highway
     Administration:
      Federal-aid highways....         739           758      739             1,217         1,399         1,248
    Research and Special
     Programs Administration:
      Emergency preparedness            24            13       13                 8            12            13
       grants.................
                               ---------------------------------------------------------------------------------
      Total, mandatory \1\....         763           771      752             1,225         1,411         1,261
                               ---------------------------------------------------------------------------------
        Total, transportation.      40,148        45,245   44,960            32,222        35,264        38,326
                               =================================================================================
    COMMUNITY AND REGIONAL
          DEVELOPMENT
Discretionary:
  Department of Agriculture:
    Rural Development:
      Rural community                  584           843      596               479           647           602
       advancement program....
    Rural Utilities Service:
      Distance learning and             21            27       27                 7            18            19
       telemedicine program...
    Rural Business--
     Cooperative Service:
      Rural cooperative                  6            31        6                 4             4            25
       development grants.....
    Forest Service:
      Southeast Alaska                  22             5   ............          10             7             7
       economic disaster fund.
  Department of Commerce:
    Economic Development
     Administration:
      Economic development             424           421      335               356           431           428
       assistance programs....
  Department of Housing and
   Urban Development:
    Public and Indian Housing
     Programs:
      Moving to work..........           5   ............  ............  ...........            3   ............
    Community Planning and
     Development:
      Community development          4,809         5,113    4,722             4,955         4,940         5,036
       block grants...........
      Urban development action  ...........  ............  ............          10            10            10
       grants.................
      Community development             30            30       15                 7            20            20
       loan guarantees subsidy
      National cities in                 5   ............  ............           5   ............  ............
       schools community
       development program....

[[Page 207]]


      Brownfields                       25            25       25                 4            25            30
       redevelopment..........
      Urban empowerment zones.          55           185      150                 7            49            92
    Office of Lead Hazard
     Control:
      Lead hazard reduction...          80           100      110                95            95            95
  Department of the Interior:
    Bureau of Indian Affairs:
      Operation of Indian              174           142      148               119           125           131
       programs...............
      Indian guaranteed loan             5             5        5                 5             9             5
       subsidy................
  Federal Emergency Management
   Agency:
    Emergency management               174           267      255               142           219           254
     planning and assistance..
    Disaster relief...........       2,295         1,115      956             2,234         1,901         2,070
    Disaster assistance for     ...........  ............  ............          50            90            54
     unmet needs..............
    National flood mitigation           20            20       20                13            23            20
     fund.....................
  Appalachian Regional                  59            70       59               125           108           100
   Commission.................
  Delta Regional Authority....  ...........           18       18        ...........            2             5
  Denali Commission...........          20            30       30                38            13            39
                               ---------------------------------------------------------------------------------
      Total, discretionary....       8,813         8,447    7,477             8,665         8,739         9,042
                               ---------------------------------------------------------------------------------
        Total, community and         8,813         8,447    7,477             8,665         8,739         9,042
         regional development.
                               =================================================================================
     EDUCATION, TRAINING,
    EMPLOYMENT, AND SOCIAL
           SERVICES
Discretionary:
  Department of Commerce:
    National
     Telecommunications and
     Information
     Administration:
      Public                            13            31       31                12            24            26
       telecommunications
       facilities, planning
       and construction.......
      Information                        6            22        5                 8            15            20
       infrastructure grants..
  Department of Education:
    Office of Elementary and
     Secondary Education:
      Reading excellence \2\..          56           277   ............          27           180           234
      Indian education........          75           113      113                64            82           105
      Impact aid..............         901           985    1,122               875         1,121         1,109
      Chicago litigation        ...........  ............  ............           2             2   ............
       settlement.............
      Education reform........         964           611   ............         965         1,234           674
      Education for the              8,667         8,938   10,969             8,511         8,432         9,355
       disadvantaged \2\......
      School improvement             1,357         4,417    6,281             2,394         2,936         3,744
       programs \2\...........
    Office of Bilingual
     Education and Minority
     Languages Affairs:
      Bilingual and immigrant          329           353      460               319           370           351
       education..............
    Office of Special
     Education and
     Rehabilitative Services:
      Special education \2\...       2,036         5,816    8,147             4,696         5,535         6,652
      Rehabilitation services          120           133      173               104           185           161
       and disability research
      American Printing House           10            12       12                 9            15            12
       for the Blind..........
    Office of Vocational and
     Adult Education:
      Vocational and adult             851         1,778    1,771             1,448         1,669         1,731
       education \2\..........
    Office of Postsecondary
     Education:
      Higher education........         281           376      307               152           347           354
    Office of Student
     Financial Assistance:
      Student financial                 40            55       55                24            49            55
       assistance.............
    Office of Educational
     Research and Improvement:
      Education research,              100            56   ............         166           174            61
       statistics, and
       assessment.............
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Promoting safe and                 3             3        3                 3             3             3
       stable families........
      Children and families          5,004         7,607    7,832             5,843         6,325         7,480
       services programs \2\..
    Administration on Aging:
      Aging services programs.         933         1,103    1,098               884         1,017         1,086
  Department of the Interior:
    Bureau of Indian Affairs:
      Operation of Indian               51            78      101                50            71           100
       programs...............
  Department of Labor:
    Employment and Training
     Administration:
      Training and employment        2,227         4,065    3,681             2,957         3,641         4,494
       services \2\...........
      Community service                 97            97       97                99           108            97
       employment for older
       Americans..............
      State unemployment               163           193      177               225           165           175
       insurance and
       employment service
       operations.............
      Unemployment trust fund.         962           982      982               961           957           982
  Corporation for National and
   Community Service:
    Domestic volunteer service          71            73       77                70            72            75
     programs, operating
     expenses.................

[[Page 208]]


    National and community             229           242      218               204           263           230
     service programs,
     operating expenses.......
  Corporation for Public
   Broadcasting:
    Corporation for Public             190           224      230               190           206           217
     Broadcasting.............
  District of Columbia:
    District of Columbia
     General and Special
     Payments:
      Federal payment for               17            17       17                17            17            17
       resident tuition
       support................
  National Endowment for the
   Arts:
    National Endowment for the          34            34       34                31            39            36
     Arts: grants and
     administration...........
    Challenge America arts      ...........            3        3        ...........            1             3
     fund.....................
  Institute of Museum and
   Library Services:
    Office of Museum Services:           6             8        5                 6             6            11
     grants and administration
    Office of Library                  151           175      152               152           155           203
     Services: grants and
     administration...........
                               ---------------------------------------------------------------------------------
      Total, discretionary \2\      25,944        38,877   44,153            31,468        35,416        39,853
                               =================================================================================
Mandatory:
  Department of Education:
    Office of Elementary and
     Secondary Education:
      Reading excellence \2\..  ...........  ............     195        ...........  ............  ............
      Education for the         ...........  ............   6,758        ...........  ............  ............
       disadvantaged \2\......
      School improvement        ...........  ............   1,765        ...........  ............  ............
       programs \2\...........
    Office of Special
     Education and
     Rehabilitative Services:
      Special education \2\...  ...........  ............   5,072        ...........  ............  ............
      Rehabilitation services        2,339         2,400    2,481             2,463         2,196         2,455
       and disability research
    Office of Vocational and
     Adult Education:
      Vocational and adult      ...........  ............     791        ...........  ............  ............
       education \2\..........
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Job opportunities and     ...........  ............  ............          15             9             3
       basic skills training
       program................
      Promoting safe and               289           300      495               239           271           316
       stable families........
      Social services block          1,775         1,725    1,700             1,827         1,906         1,809
       grant..................
      Children and families     ...........  ............   1,400        ...........  ............  ............
       services programs \2\..
      Payments to States for         5,697         6,401    6,682             5,453         6,055         6,549
       foster care and
       adoption assistance....
  Department of Labor:
    Employment and Training
     Administration:
      Training and employment   ...........  ............   1,772        ...........  ............  ............
       services \2\...........
      Welfare to work jobs....        -137           -50   ............         527           850           690
      Federal unemployment             132           132      132               133           141           136
       benefits and allowances
                               ---------------------------------------------------------------------------------
      Total, mandatory \2\....      10,095        10,908   29,243            10,657        11,428        11,958
                               ---------------------------------------------------------------------------------
        Total, education,           36,039        49,785   73,396            42,125        46,844        51,811
         training, employment,
         and social services..
                               =================================================================================
            HEALTH
Discretionary:
  Department of Agriculture:
    Food Safety and Inspection
     Service:
      Salaries and expenses...          43            47       48                43            47            48
  Department of Health and
   Human Services:
    Food and Drug
     Administration:
      Salaries and expenses...           1             1        1                 1             1             1
    Health Resources and
     Services Administration:
      Health resources and           2,028         2,215    2,344             2,028         2,215         2,344
       services...............
    Centers for Disease
     Control and Prevention:
      Disease control,               1,881         2,502    2,497             1,611         2,006         2,386
       research, and training.
    Substance Abuse and Mental
     Health Services
     Administration:
      Substance abuse and            2,012         2,152    2,212             1,931         2,027         2,109
       mental health services.
  Department of Labor:
    Occupational Safety and
     Health Administration:
      Salaries and expenses...          82            88       88                82            88            88
    Mine Safety and Health
     Administration:
      Salaries and expenses...           6             8        8                 6             8             8
                               ---------------------------------------------------------------------------------
      Total, discretionary....       6,053         7,013    7,198             5,702         6,392         6,984
                               =================================================================================

[[Page 209]]


Mandatory:
  Department of Health and
   Human Services:
    Health Care Financing
     Administration:
      Grants to States for         117,744       128,853   142,423          117,921       128,853       142,423
       medicaid...............
      State children's health        4,259         4,249    3,115             1,220         4,032         3,355
       insurance fund.........
      State grants and          ...........           62       67        ...........           16            29
       demonstrations.........
      Immediate helping hand    ...........        2,500   11,200        ...........        2,500        11,200
       prescription drug plan.
                               ---------------------------------------------------------------------------------
      Total, mandatory........     122,003       135,664   156,805          119,141       135,401       157,007
                               ---------------------------------------------------------------------------------
        Total, health.........     128,056       142,677   164,003          124,843       141,793       163,991
                               =================================================================================
        INCOME SECURITY
Discretionary:
  Department of Agriculture:
    Food and Nutrition
     Service:
      Food donations programs.         141           151      151               137           150           150
      Commodity assistance             133           140      135               132           138           135
       program................
      Special supplemental           4,032         4,044    4,137             3,950         4,085         4,129
       nutrition program for
       women, infants, and
       children (WIC).........
      Child nutrition programs          14            13        9                 7             7             5
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Low income home energy         2,000         1,700    1,700             1,495         2,241         1,525
       assistance.............
      Refugee and entrant              377           324      324               280           326           324
       assistance.............
      Payments to States for         1,178         1,993    2,193             1,065         1,677         2,062
       the child care and
       development block grant
  Department of Housing and
   Urban Development:
    Public and Indian Housing
     Programs:
      Public housing operating       3,138         3,235    3,385             2,836         3,217         3,336
       fund...................
      Drug elimination grants          310           309   ............         288           317           313
       for low-income housing.
      Revitalization of                575           574      574               379           460           552
       severely distressed
       public housing (HOPE
       VI)....................
      Public housing capital         2,884         2,993    2,293             3,690         3,718         3,583
       fund...................
      Native American housing          620           649      649               643           707           669
       block grant............
      Housing certificate fund       3,671         8,099   11,283             8,803         9,092         9,722
       \2\....................
    Community Planning and
     Development:
      Homeless assistance            1,020         1,023    1,023               885         1,000         1,200
       grants.................
      Home investment                1,636         1,796    1,796             1,479         1,736         1,857
       partnership program....
      Youthbuild program......  ...........  ............  ............           1             1   ............
      Housing opportunities            232           257      277               215           216           219
       for persons with AIDS..
      Rural housing and                 25            25   ............           8            24            25
       economic development...
    Housing Programs:
      Congregate services.....  ...........  ............  ............           2   ............  ............
      Homeownership and                -19   ............  ............          25            25            25
       opportunity for people
       everywhere grants (HOPE
       grants)................
      Housing for special              911           996    1,001               720           988         1,025
       populations............
  Department of Labor:
    Employment and Training
     Administration:
      Unemployment trust fund.       2,366         2,364    2,414             2,359         2,364         2,414
  Federal Emergency Management
   Agency:
    Emergency food and shelter         110           140      140               110           140           140
     program..................
                               ---------------------------------------------------------------------------------
      Total, discretionary \2\      25,354        30,825   33,484            29,509        32,629        33,410
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Agricultural Marketing
     Service:
      Funds for strengthening          710           738      710               523           750           639
       markets, income, and
       supply (section 32)....
    Food and Nutrition
     Service:
      Food stamp program......       3,774         3,878    3,806             3,508         3,558         3,752
      Child nutrition programs       9,436         9,466    9,932             9,053         9,748        10,189
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Payments to States for         1,010         3,321    3,448             2,906         3,439         3,453
       child support
       enforcement and family
       support programs.......
      Child care entitlement         2,367         2,567    2,717             2,237         2,423         2,555
       to States..............
      Temporary assistance for      16,689        16,689   16,679            15,464        17,080        17,260
       needy families.........
  Department of Housing and
   Urban Development:
    Public and Indian Housing
     Programs:
      Housing certificate fund  ...........  ............   3,057        ...........  ............  ............
       \2\....................
                               ---------------------------------------------------------------------------------

[[Page 210]]


      Total, mandatory \2\....      33,986        36,659   40,349            33,691        36,998        37,848
                               ---------------------------------------------------------------------------------
        Total, income security      59,340        67,484   73,833            63,200        69,627        71,258
                               =================================================================================
        SOCIAL SECURITY
Discretionary:
  Social Security
   Administration:
    Federal disability                   6            14       14                 6            14            14
     insurance trust fund.....
                               ---------------------------------------------------------------------------------
      Total, discretionary....           6            14       14                 6            14            14
                               ---------------------------------------------------------------------------------
        Total, social security           6            14       14                 6            14            14
                               =================================================================================
VETERANS BENEFITS AND SERVICES
Discretionary:
  Department of Veterans
   Affairs:
    Veterans Health
     Administration:
      Medical care............         318           343      369               318           343           369
    Construction:
      Grants for construction           90           100       50               104            85            91
       of State extended care
       facilities.............
      Grants for the                    25            25       25                12            17            21
       construction of State
       veterans cemeteries....
                               ---------------------------------------------------------------------------------
      Total, discretionary....         433           468      444               434           445           481
                               ---------------------------------------------------------------------------------
        Total, veterans                433           468      444               434           445           481
         benefits and services
                               =================================================================================
   ADMINISTRATION OF JUSTICE
Discretionary:
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Violent crime reduction           92   ............  ............          97            84            29
       programs \3\...........
  Department of Housing and
   Urban Development:
    Fair Housing and Equal
     Opportunity:
      Fair housing activities.          44            46       46                33            37            37
  Department of Justice:
    Office of Justice
     Programs:
      Justice assistance......         151           263      304                65           147           455
      State and local law            1,520         2,767    1,933               475         1,760         3,270
       enforcement assistance.
      Juvenile justice                 242           263      268               177           158           383
       programs...............
      Community oriented               595         1,037      855             1,390         1,210           926
       policing services......
      Violent crime reduction        1,184   ............  ............       2,049   ............  ............
       programs, State and
       local law enforcement
       assistance.............
  Court Services and Offender
   Supervision Agency for the
   District:
    Federal payment to Court            93   ............  ............          66   ............  ............
     Services and Offender
     Supervision Agency for
     the District of Columbia.
  Equal Employment Opportunity
   Commission:
    Salaries and expenses.....          29            30       30                46            42            45
  State Justice Institute:
    State Justice Institute:             7             7        7                 8             7             7
     salaries and expenses....
                               ---------------------------------------------------------------------------------
      Total, discretionary....       3,957         4,413    3,443             4,406         3,445         5,152
                               =================================================================================
Mandatory:
  Department of Justice:
    Legal Activities and U.S.
     Marshals:
      Assets forfeiture fund..         305           240      208               220           275           246
    Office of Justice
     Programs:
      Crime victims fund......         500           509      567               386           657           490
  Department of the Treasury:
    Departmental Offices:
      Treasury forfeiture fund          98            88       88               108            88            88
                               ---------------------------------------------------------------------------------
      Total, mandatory........         903           837      863               714         1,020           824
                               ---------------------------------------------------------------------------------
        Total, administration        4,860         5,250    4,306             5,120         4,465         5,976
         of justice...........
                               =================================================================================

[[Page 211]]


      GENERAL GOVERNMENT
Discretionary:
  Department of the Interior:
    Bureau of Land Management:
      Payments in lieu of              134           200      150               133           200           150
       taxes..................
    Insular Affairs:
      Trust Territory of the    ...........  ............  ............           2             2             2
       Pacific Islands........
  District of Columbia:
    District of Columbia
     Courts:
      Federal payment to the           100           105      111                86           107           114
       District of Columbia
       courts.................
      Defender services in              34            34       34                26            39            34
       District of Columbia
       courts.................
      Crime victims             ...........           18   ............  ...........           18   ............
       compensation fund......
    District of Columbia
     Corrections:
      Payment to the District          175           134       33               158           144            43
       of Columbia corrections
       trustee, operations....
    District of Columbia
     General and Special
     Payments:
      Federal support for               34            43   ............          83            43   ............
       economic development
       and management reforms
       in the District........
  Federal Drug Control
   Programs:
    High-intensity drug                158           172      206               143           161           223
     trafficking areas program
                               ---------------------------------------------------------------------------------
      Total, discretionary....         635           706      534               631           714           566
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Forest Service:
      Forest Service permanent         213           227      393               213           227           393
       appropriations.........
  Department of Energy:
    Energy Programs:
      Payments to States under           3             3        3                 3             3             3
       Federal Power Act......
  Department of the Interior:
    Bureau of Land Management:
      Miscellaneous permanent          104             8      120               105             8           114
       payment accounts.......
    Minerals Management
     Service:
      Mineral leasing and              691         1,094      983               691         1,094           983
       associated payments....
    United States Fish and
     Wildlife Service:
      National wildlife refuge          19            18       18                19            18            18
       fund...................
    Insular Affairs:
      Assistance to                     70            78       69                74            66            77
       territories............
      Payments to the United           148           104      104               147           104           104
       States territories,
       fiscal assistance......
  Department of the Treasury:
    Bureau of Alcohol, Tobacco
     and Firearms:
      Internal revenue                 297           315      246               297           315           246
       collections for Puerto
       Rico...................
    United States Customs
     Service:
      Refunds, transfers, and           90            96      101                90            96           101
       expenses of operation,
       Puerto Rico............
  Corps of Engineers:
    Permanent appropriations..           9             8        8                17             8             8
                               ---------------------------------------------------------------------------------
      Total, mandatory........       1,644         1,951    2,045             1,656         1,939         2,047
                               ---------------------------------------------------------------------------------
        Total, general               2,279         2,657    2,579             2,287         2,653         2,613
         government...........
                               =================================================================================
          Total, Grants.......     286,267       329,016   377,682          284,659       316,265       350,061
            Discretionary \1\      115,953       141,148   146,551          116,654       127,051       138,092
             \2\..............
            Mandatory \1\ \2\.     170,314       187,868   231,131          168,005       189,214       211,969
----------------------------------------------------------------------------------------------------------------
\1\ Budget authority for certain transportation programs is classified as mandatory in other budget
  presentations.
\2\ The Administration proposes to reverse the misleading budget practice of using advance appropriations simply
  to avoid spending limitations. In order to avoid overstating discretionary budget authority in 2002, language
  is proposed to designate the advance appropriation budget authority, appropriated in 2001, as direct
  (mandatory) spending.
\3\ Amounts for 2001 and 2002 are part of the children and families services programs in the Department of
  Health and Human Services.