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



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               10.  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 $317.2 billion in 2001 and are estimated to increase to 
$346.5 billion in 2002 and $376.4 billion in 2003.
  Grant outlays for payments for individuals, such as Medicaid, are 
estimated to be 64.3 percent of total grants in 2003; for physical 
capital investment, 15.2 percent; and for all other purposes, largely 
education, training, and social services, 20.5 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 $80.1 
billion in 2002 and $82.9 billion in 2003. 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 6, ``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 6-5 in that chapter.

              Table 10-1.  FEDERAL GRANT OUTLAYS BY AGENCY
                        (In billions of dollars)
------------------------------------------------------------------------
                                               2001     2002      2003
                   Agency                     Actual  Estimate  Proposed
------------------------------------------------------------------------
Department of Agriculture..................     20.2      21.8      22.4
Department of Commerce.....................      0.4       0.8       0.6
Department of Education....................     24.0      28.1      33.0
Department of Energy.......................      0.2       0.3       0.4
Department of Health and Human Services....    183.1     201.2     220.1
Department of Housing and Urban Development     26.2      28.0      29.4
Department of the Interior.................      2.7       2.6       2.7
Department of Justice......................      6.2       4.3       7.2
Department of Labor........................      7.7       8.9       8.6
Department of Transportation...............     36.7      38.7      38.4
Department of the Treasury.................      0.5       0.5       0.4
Department of Veterans Affairs.............      0.4       0.5       0.5
Environmental Protection Agency............      3.8       3.7       4.0
Federal Emergency Management Agency........      3.2       4.8       6.7
Other agencies.............................      1.8       2.3       2.1
                                            ----------------------------
   Total...................................    317.2     346.5     376.4
------------------------------------------------------------------------

  Table 10-1 shows the distribution of grants by agency. Grant outlays 
for the Department of Health and Human Services are estimated to be 
$220.1 billion in 2003, 58.5 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 the 
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, which includes interagency work on standard and streamlined 
forms and processes. Each of the Federal grant-making agencies is 
responsible for working individually and collectively under the auspices 
of the Federal Financial Assistance Management Improvement Act of 1999 
(P.L. 106-107) to simplify grants and provide an electronic option for 
grantees to conduct business with the Federal government.
  Highlights of grants to State and local governments follow. For 
additional information on grants, see the

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detailed Table 10-3 in this Chapter, and discussions in the Budget 
volume.

Federal Emergency Management Agency

  The budget provides the Federal Emergency Management Agency (FEMA) 
with $3.5 billion in budget authority in 2003 to create a grant program 
to improve State and local terrorism preparedness. While State and local 
jurisdictions will have discretion to tailor the assistance to meet 
local needs, it is anticipated that more than one-third of the funds 
will be used to improve communications. It is further assumed that an 
additional one-third will be used to equip State and local first 
responders and that the remainder will be used for training, planning, 
technical assistance and administration. The First Responder State/Local 
Preparedness grant program would consolidate several existing programs, 
including a first responder grant previously funded within the 
Department of Justice (funded at $635 million in 2002). As part of this 
consolidation, FEMA will take over the functions of Justice's Office of 
Domestic Preparedness. The program would also encompass the recently 
created FEMA FIRE grant program (funded at $360 million in 2002).

Education

  The budget requests $36.1 billion in 2003 budget authority for the 
Department of Education for grants to States and local governments for 
education, an increase of $2.0 billion above the 2002 amount of $34.1 
billion. The education proposals in this budget will help States improve 
accountability for school and student performance, increase flexibility, 
and support proven programs.
  The Department of Education seeks to ensure equal access to education 
and promote educational excellence for all students throughout the 
Nation. It promotes educational excellence and access in elementary and 
secondary education by providing formula and competitive grants to 
States and local educational agencies in areas of national priority.
  The budget requests $11.4 billion for Title I grants to school 
districts to help raise student achievement in the Nation's most 
impoverished communities. At this level, funding will have increased 85 
percent since 1993. Major reform is underway for Title I grants which 
have fallen short in meeting their objectives. Historically, Title I has 
done little to raise student achievement as measured by test scores of 
low-income students. For instance, reading scores of at-risk students 
have remained flat over this period. However, in light of this year's 
legislative reforms, the Administration believes that the program now 
holds promise for improving performance by the schools and for the 
students who face the most challenges. Schools that receive Title I 
funds must show academic progress each year, both for students overall 
and for each student group, to ensure that all groups of students are 
proficient in reading and math within 12 years. If a school that 
receives Title I funds does not improve for three consecutive years, 
parents can use Federal funds for outside educational assistance from a 
public or private tutor of their choice. The budget builds a foundation 
for success by investing $1.0 billion in 2003 in the Reading First 
program, a $100 million increase over 2002. Reading is the foundation 
skill for all other learning. The President's goal is to ensure that all 
students can read at grade level by the end of the third grade. The 
Reading First program, initiated through the new Elementary and 
Secondary Education Act (ESEA), will provide funds to States to support 
only the most proven reading practices. The budget includes $75 million 
for Early Reading First, the same level as 2002, to develop model 
programs to help children in high-poverty communities prepare for 
school. The budget also proposes $387 million for the second year of 
Federal support of States' development of annual reading and math 
assessments for grades 3 through 8. These assessments will be used to 
monitor the yearly progress of schools under the new requirements of 
ESEA.
  The budget proposes $665 million for performance-based grants to 
States to promote English language acquisition. Under the new law, 
students served by this program must also show adequate yearly progress, 
thus giving States a strong incentive to improve student performance on 
annual assessments.
  The budget proposes $2.9 billion for the Teacher Quality State Grants 
program to recruit, train, and retain qualified teachers. This funding 
should assist States in ensuring that all new teachers in schools 
receiving Title I funds are highly qualified as required by the new 
ESEA.
  Children with disabilities are among those at greatest risk of being 
left behind. The Individuals with Disabilities Education Act (IDEA) 
establishes the right of children with disabilities to a free and 
appropriate public education. To help States and localities meet their 
responsibilities toward children with disabilities, the budget proposes 
$9.4 billion for the Special Education grant to States program for 2003, 
a $1.0 billion increase. This total includes $437 million for States to 
identify and serve infants and toddlers with disabilities, a $20 million 
increase. In many cases, this early intervention can reduce or even 
eliminate the need for special education as children grow up.
  As part of the President's initiative to tie budget decisions to 
program performance, this budget will launch a multi-year effort to 
reform job training programs across the Federal government, target 
resources to programs with documented effectiveness, and eliminate 
funding for ineffective, duplicative, and overlapping programs. As part 
of this initiative, the budget proposes a new $30 million incentive 
grant, which will be allocated to State Vocational Rehabilitation (VR) 
agencies based on their performance in helping individuals with 
disabilities obtain competitive jobs. While nationwide State VR agency 
performance has improved in recent years, there is still wide variation 
among States.

Training and Employment

  The budget reflects the Administration's continued efforts to reform 
the Nation's workforce development

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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 (JTPA) was repealed and all 
States began to fully implement the WIA requirements. However, the WIA's 
authorization will expire in 2003, providing the Administration an 
opportunity to evaluate critically the current program structure, 
financing, and performance. The Administration will undertake that work 
in the coming year, and the 2004 Budget will outline a proposal to 
further consolidate training programs. In 2003, estimates indicate that 
more than $9.3 billion will be available for investments in job training 
and other dislocated worker services, including $5 billion in new budget 
authority and $4.3 billion in unspent resources carried forward into 
2003.
  The Administration is proposing short- and longer-term legislative 
reforms to promote flexibility and strengthen the Unemployment Insurance 
(UI) and Employment Service (ES) programs. Near-term reforms are 
designed to meet the immediate needs of unemployed workers during the 
current economic slowdown. Longer-term reforms will enable more workers 
to receive extended UI benefits; reduce employers' Federal payroll 
taxes, spurring economic growth; and allow States to control their own 
administrative funding. The budget also includes two proposals to 
strengthen financial management of the UI program and help States cut 
wasteful benefit overpayments. These proposals would enable the 
Inspector General to uncover fraudulent benefits schemes and train 
States to detect and reduce overpayments; and assist States in their 
efforts to use existing databases to eliminate fraudulent payments to 
ineligible claimants. The budget proposes $12 million for these efforts.
  The Administration also is encouraging greater competition and 
participation by faith-based and community organizations in Federal 
grant programs. To this end, the Department of Labor has scrutinized its 
grant program applications to remove barriers. For example, it 
discovered that under the Women in Apprenticeship and Non-traditional 
Occupations (WANTO) program, applicants were required to demonstrate a 
``history of commitment to economic and social justice.'' The Department 
of Labor dropped this restrictive language, and received 37 
applications, more than twice the average received in recent years. Of 
the 11 actual grant recipients, 4 were new applicants who never had 
received a WANTO grant.

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) in 
the Department of Health and Human Services. The Administration requests 
$6.7 billion for Head Start for 2003, a $130 million increase above 
2002. The President has proposed to reform Head Start and return it to 
its original focus getting children ready to learn. The Department of 
Health and Human Services and the Department of Education have formed a 
taskforce to assess ways to improve Head Start and lay the groundwork 
for the proposed transfer to the Department of Education as part of the 
program's reauthorization.
  The budget requests $1.7 billion for the Social Services Block Grant 
for 2003. 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 $7.5 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 2003, the programs will serve an 
estimated 26.3 million lunches and 7.7 million breakfasts daily. 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 budget 
provides $4.8 billion in 2003 for WIC, including a $150 million 
contingency fund. The request is sufficient to serve 7.8 million persons 
monthly and the contingency fund will ensure that the program can expand 
to serve an increasing number of eligible persons should that be 
necessary for any reason.

  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. The Child Care Development Fund is funded through both the 
Child Care and Development Block Grant ($2.1 billion proposed for 2003) 
and the Child Care Entitlement to States ($2.7 billion proposed for 
2003).

Health

  This budget proposes $172.0 billion in outlays for 2003 grants to 
State and local governments for health, $16.4 billion more than for 
2002.

  Transitional Medicare Low-Income Drug Assistance.--The Administration 
proposes to begin to phase in comprehensive drug coverage for lower-
income Medicare beneficiaries up to 150 percent of poverty, as 
envisioned in all major prescription drug proposals. This proposal would 
allow States to expand drug coverage to Medicare beneficiaries up to 100 
percent of poverty--about $12,000 for a family of two--at current 
Medicaid matching rates, much like existing programs that subsidize 
Medicare premiums and cost-sharing for low-income Medicare 
beneficiaries. Further, as an added incentive for States to expand 
coverage up to 150 percent

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of poverty--about $17,000 for a family of two--the Federal government 
would pay 90 percent of the States' costs of expansion above 100 percent 
of poverty with States being responsible for the remaining 10 percent. 
This policy eventually would expand drug coverage for up to 3 million 
beneficiaries currently without prescription drug assistance.

  Medicaid.--Medicaid is the largest grant program, with outlays 
projected to be $160.1 billion in 2003, including the changes proposed 
in this budget. In 2001, this Federal-State health care program served 
about 37 million low-income Americans, primarily children, pregnant 
women, the elderly, and those with disabilities. The Federal Government 
spent $129.4 billion, 57 percent of the total program in 2001, while 
States spent $98.4 billion or 43 percent. Medicaid covers one-fourth of 
the Nation's children and is the largest single purchaser of maternity 
care and nursing home and other long-term care services. The elderly and 
disabled made up one-third of Medicaid enrollees in 2001, but accounted 
for approximately two-thirds of spending on benefits. Medicaid pays for 
over one-third of the Nation's long-term care services.
  The Administration proposes several Medicaid initiatives. One 
initiative would extend for one year Transitional Medicaid Assistance, 
which provides health insurance coverage to former welfare recipients 
who would otherwise lose Medicaid eligibility due to earnings from 
employment. The Administration also proposes to strengthen management 
and enforcement of Federal payment policies for hospital, nursing home, 
and school-based health services. The General Accounting Office and the 
Department of Health and Human Services' Inspector General have 
identified questionable Medicaid claiming practices for these services, 
and have recommended increased Federal oversight.

  State Children's Health Insurance Program.--The State Children's 
Health Insurance Program (SCHIP) was established in 1997 in the Balanced 
Budget Act to make available approximately $40 billion over 10 years for 
States to provide health care coverage to low-income, uninsured 
children. The Balanced Budget Act of 1997 authorized annual allotments 
that are available to States for three years; remaining funds were then 
to be redistributed among the States and available for one additional 
year before returning to the Treasury. According to current estimates, 
$3.2 billion in funds will return to the Treasury at the end of 2002 and 
2003. The Administration proposes to extend the availability of these 
expiring funds until 2006. According to current estimates, this 
extension will allow every State to retain some funds. This proposal 
will enable more States to maintain their current coverage levels as 
well as provide additional health insurance coverage to more Americans 
under the Administration's Health Insurance Flexibility and 
Accountability (HIFA) initiative. SCHIP gives States broad flexibility 
in program design while protecting beneficiaries through basic Federal 
standards. Approximately 4.6 million children were enrolled in SCHIP 
programs in 2001.

  Health Insurance Flexibility and Accountability Initiative.--In August 
2001, the Administration introduced the HIFA demonstration initiative, 
which gives States the flexibility they need to design innovative ways 
to increase access to health insurance coverage for the uninsured. The 
HIFA initiative:
    Encourages States to develop comprehensive health insurance 
          coverage approaches that utilize available Medicaid and SCHIP 
          funding to address insurance coverage for individuals with 
          incomes less than twice the official poverty level.
    Gives States the programmatic flexibility to increase health 
          insurance coverage through support of private group health 
          coverage.
    Simplifies the waiver application process by providing clear 
          guidance and data templates.
    Increases accountability in the State and Federal 
          partnership by ensuring that Medicaid and SCHIP funds are 
          effectively being used to increase health insurance coverage.
  The Administration will continue to build on the HIFA initiative to 
give States the flexibility they need to extend coverage to more of the 
neediest residents and reduce the number of uninsured.

  Bioterrorism.--The budget requests over $1.4 billion to assist States 
and localities prepare for, identify and respond to acts of 
bioterrorism. The President's proposal will improve the ability of State 
public health laboratories to identify dangerous agents, allow hospitals 
to conduct training exercises with the State public health and emergency 
departments, improve coordination between hospitals on a regional basis 
and allow them to purchase better equipment, and improve the 
communication between State public health and emergency response systems 
in the case of an attack.

  Community Health Centers.--This budget requests Federal spending to 
assist State and local governments in increasing access to health care 
by increasing the number of community health center sites. Community 
health centers (CHCs) provide family-oriented, preventive and primary 
health care to over 11 million patients through a network of over 3,400 
health centers sites. CHCs are successfully improving the health status 
of the Nation's underserved populations. The budget builds on the 2002 
Community Health Centers Presidential Initiative to increase the number 
of health center sites by 1,200 to serve an additional 6.1 million 
patients by 2006.

Natural Resources and Environment

  The Administration requests over $900 million for the Land and Water 
Conservation Fund (LWCF), of which $575 million is for grants and 
assistance programs. Traditionally, funds from the LWCF have been used 
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. Last year, the LWCF funded two of the 
President's priorities, both of which recognize that Federal acquisition 
is not always the best or only way to con

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serve land and other natural resources. These programs, which include 
the Landowner Incentive Grants and Private Stewardship Grants, provide 
new ways to cooperate with private landowners to enhance habitat for 
imperiled species and encourage conservation efforts on private lands.
  The budget funds the Cooperative Conservation Initiative (CCI) by 
allocating $100 million in matching funds for natural resource 
conservation projects. Projects can range from working with The Nature 
Conservancy to removing invasive species from Channel Islands National 
Park, to working with local communities to reclaim abandoned mine sites. 
Half of these funds would be allocated through cost-shared programs 
between non-Federal partners and the Department of Interior's National 
Park Service, Fish and Wildlife Service, and Bureau of Land Management. 
The other half would be distributed to States as part of the LWCF State 
Grant program.
  The Administration's focus on endangered species involves working with 
partners to prevent species from being on the endangered species list in 
the first place and to recover those already listed. The President's 
budget provides over $200 million in 2003 for such activities through 
various grant programs, including the Cooperative Endangered Species 
Conservation Fund, State and Tribal Wildlife Grant, Landowner Incentive 
Grant and Private Stewardship Grant programs. These programs emphasize 
working with and encouraging States and landowners to protect a variety 
of species and their habitat, thereby garnering matching funds and their 
support of these conservation efforts.
  The Administration also proposes $171 million in grant funding in 2003 
under the recent Brownfields authorizing legislation. This fully funds, 
at the authorized level of $50 million, the new grant program to 
establish State response programs for oversight of private clean-up 
activities. This also provides $121 million in grants to States, tribes 
and municipalities for Brownfields clean-up activities. These grants 
will be used to characterize and assess the contamination of properties, 
capitalize revolving loan funds used for clean-up, and provide job 
training, among other activities.

Administration of Justice

  The budget increases funding for counter-terrorism and homeland 
security measures by reducing grants and other programs that have 
accomplished their mission, failed to demonstrate a clear impact on 
crime, or have been extensively earmarked by Congress. Despite spending 
billions of dollars since 1994, virtually no evidence links the 
Department of Justice's grant programs to the Nation's falling crime 
rate, and most lack verifiable measures of performance. The President's 
proposal continues to support flexible grant funding for State and local 
law enforcement by merging Byrne Grants, Local Law Enforcement Block 
Grants, and the Community Oriented Policing Services Hiring Grants into 
a new $800 million Justice Assistance Grant Program. While Department of 
Justice grants are reduced by a net total of $1.2 billion, this is more 
than offset by the budget's proposal for $3.5 billion in the Federal 
Emergency Management Agency assistance to improve the terrorism 
preparedness and crisis response capabilities of State and local first 
responders, including police, fire, and rescue personnel.

Transportation

  Grant outlays for transportation are estimated to be $38.4 billion in 
2003 to assist with transportation infrastructure and related programs, 
including highways, transit, airports and other areas.

  Highways and Transit.--The budget requests $22.1 billion in budgetary 
resources in 2003 for the Federal-aid highways program to maintain and 
improve surface transportation infrastructure, along with improvements 
in the physical condition and safety of the facilities.
  Under the Transportation Equity Act for the 21st Century (TEA-21), 
highway spending is adjusted each year according to a formula in law 
that reflects the most recent data on highway-related receipts. In 2000, 
2001, and 2002 highway spending was increased significantly by these 
annual adjustments. However, for 2003 this formula will produce a 
reduction in the amount of new commitments of highway spending, due in 
large part to a previous overestimate of actual receipts in 2001. Even 
so, in 2003 actual spending on highway construction, including the 
continuation of prior-year projects, will fall less than three percent 
from its all-time high in 2002. Highway spending in 2003 will be 40 
percent higher than in 1998, the first year of TEA-21. These 
infrastructure programs help reduce congestion and expand travel 
options. The Department of Transportation also has several programs that 
regulate highway and pipeline safety to reduce accidents and fatalities.
  The budget requests $7.1 billion in budgetary resources in 2003 to 
assist State and local governments with mass transit programs.

  Airports.--The budget requests $3.4 billion in budgetary resources in 
2003 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. Of 
this amount, $83 million is for the essential air service program.

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 2003 in CDBG grants for improving 
housing, public works and services, promoting economic development, and 
acquiring or clearing land. While it favors poorer communities, the 
current distribution of CDBG formula funds includes many grants to 
higher-income cities and counties. The budget proposes a legislative 
change to reduce

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grants to the wealthiest one-percent of eligible communities. These 
savings allow for the funding of a $16 million initiative to improve 
housing and economic conditions in the Colonias, which are communities 
within 150 miles of the U.S.-Mexican border that lack adequate 
infrastructure and other basic services. In addition, the CDBG formula 
program grows by $95 million in 2003, giving communities an increase in 
their annual CDBG allocations. As 2000 Census data become available the 
Department of Housing and Urban Development will develop proposals for a 
new CDBG allocation formula and process, to allocate more to those who 
need these funds and will use them effectively.
  The budget proposes to streamline the Department of Housing and Urban 
Development's efforts to promote community and economic development by 
eliminating two Community Planning and Development programs--the Rural 
Housing and Economic Development grants and Round II Empowerment Zones 
(EZs) grants. Since 1999, these three programs have received over $430 
million. Evaluations and other performance information provide no 
convincing evidence that these are effective programs. The savings from 
eliminating these programs will be reinvested in the CDBG program.
  The budget supports approaches for increasing affordable housing. 
There is a $100 million increase for the HOME block grant, a flexible 
program that localities can tailor to their particular housing needs. 
This program will produce about 23,000 new affordable rental units in 
2003 and rehabilitate another 23,000.

  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 and help build rural community facilities 
such as fire stations and medical centers, and 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. Department of Agriculture 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 $2.8 billion 
in loans and grants for RCAP for 2003.

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 of budget authority and outlays for all grants to 
State and local governments is in Table 10-3 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 10-2 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, social security, and the 
veterans benefits and services functions are combined in the ``other 
functions'' line in the table.

                                                              Table 10-2.  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      2007
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
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       4.9       5.3       5.5       5.6       5.6       5.6       5.5
  Agriculture........................      0.2      0.5      0.6      0.4      0.6       2.4       1.3       0.8       0.7       0.8       0.9       0.8       0.9       0.9       0.9       0.9
  Transportation.....................      3.0      4.1      4.6      5.9     13.0      17.0      19.2      25.8      32.2      36.7      38.7      38.4      35.6      34.9      35.2      36.4
  Community and regional development.      0.1      0.6      1.8      2.8      6.5       5.2       5.0       7.2       8.7       9.5      11.6      14.2      14.9      14.3      12.6      12.4
  Education, training, employment,         0.5      1.1      6.4     12.1     21.9      17.1      21.8      30.9      36.7      40.1      45.9      51.6      54.2      55.2      55.8      56.8
   and social services...............
  Health.............................      0.2      0.6      3.8      8.8     15.8      24.5      43.9      93.6     124.8     139.3     155.6     172.0     185.2     200.6     217.9     237.7
  Income security....................      2.6      3.5      5.8      9.4     18.5      27.9      36.8      58.4      68.7      76.1      80.0      82.8      84.4      84.9      85.7      86.0
  Administration of justice..........  .......  .......        *      0.7      0.5       0.1       0.6       1.2       5.3       6.6       4.7       7.6       8.5       5.5       5.0       5.0
  General government.................      0.2      0.2      0.5      7.1      8.6       6.8       2.3       2.3       2.1       2.4       2.6       2.2       3.4       2.2       2.3       2.2
  Other..............................        *      0.1      0.1      0.2      0.7       0.8       0.8       0.8       0.9       1.0       1.2       1.3       1.3       1.3       1.4       1.4
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
    Total............................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     317.2     346.5     376.4     394.0     405.4     422.6     444.4
 
B. Distribution of Grants by BEA
 Category:
  Discretionary......................      N/A      2.9     10.2     21.0     53.3      55.5      63.3      94.0     116.7     131.1     143.7     155.4     156.8     154.5     153.7     154.8
  Mandatory..........................      N/A      8.0     13.9     28.8     38.1      50.4      72.0     131.0     168.0     186.2     202.8     221.0     237.1     250.9     268.9     289.5
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
    Total............................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     317.2     346.5     376.4     394.0     405.4     422.6     444.4
 
C. Composition:
  Current dollars:
    Payments for individuals \1\.....      2.5      3.7      8.7     16.8     32.6      50.1      77.3     144.4     182.6     203.9     223.2     242.1     256.6     272.9     291.6     313.3
    Physical capital \1\.............      3.3      5.0      7.1     10.9     22.6      24.9      27.2      39.6      48.7      53.4      56.8      57.2      55.5      53.7      54.0      54.2
    Other grants.....................      1.2      2.2      8.3     22.2     36.2      30.9      30.9      41.0      53.4      59.9      66.5      77.2      81.8      78.8      77.0      76.8
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
      Total..........................      7.0     10.9     24.1     49.8     91.4     105.9     135.3     225.0     284.7     317.2     346.5     376.4     394.0     405.4     422.6     444.4
 
  Percentage of total grants:
    Payments for individuals \1\.....    35.3%    34.1%    36.2%    33.6%    35.7%     47.3%     57.1%     64.2%     64.1%     64.3%     64.4%     64.3%     65.1%     67.3%     69.0%     70.5%
    Physical capital \1\.............    47.3%    45.7%    29.3%    21.9%    24.7%     23.5%     20.1%     17.6%     17.1%     16.8%     16.4%     15.2%     14.1%     13.3%     12.8%     12.2%
    Other grants.....................    17.4%    20.2%    34.5%    44.5%    39.6%     29.2%     22.8%     18.2%     18.8%     18.9%     19.2%     20.5%     20.8%     19.4%     18.2%     17.3%
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
      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%    100.0%
 
  Constant (FY 1996) dollars:
    Payments for individuals \1\.....     11.3     15.9     31.7     45.4     60.2      70.7      90.8     147.4     169.9     185.7     199.8     211.9     219.6     228.2     238.2     249.9
    Physical capital \1\.............     15.8     22.4     25.2     23.9     36.1      31.8      30.3      40.4      45.4      48.6      50.6      49.7      47.1      44.5      43.6      42.7
    Other grants.....................      8.3     12.8     36.1     67.2     72.2      44.5      36.8      42.0      46.8      51.0      55.3      62.7      64.9      60.9      58.0      56.5
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
      Total..........................     35.3     51.2     92.9    136.5    168.5     147.0     157.9     229.8     262.2     285.3     305.8     324.3     331.6     333.7     339.8     349.1
 
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%     16.9%     17.7%     18.0%     17.8%     17.8%     18.0%
    Domestic programs \2\............    18.0%    18.3%    23.2%    21.7%    22.2%     18.2%     17.1%     21.6%     22.0%     22.9%     22.2%     23.2%     23.4%     23.2%     23.1%     23.2%
  State and local expenditures.......    19.2%    20.1%    24.1%    27.1%    30.4%     24.2%     21.0%     25.1%     24.4%     25.2%       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%      3.3%      3.4%      3.4%      3.3%      3.3%      3.3%
 
E. As a share of total State and
 local gross investments:
  Federal capital grants.............    24.6%    25.5%    25.4%    25.9%    35.4%     30.2%     21.9%     25.8%     22.1%     23.0%       N/A       N/A       N/A       N/A       N/A       N/A
  State and local own-source             75.4%    74.5%    74.6%    74.1%    64.6%     69.8%     78.1%     74.2%     77.9%     77.0%       N/A       N/A       N/A       N/A       N/A       N/A
   financing.........................
                                      ----------------------------------------------------------------------------------------------------------------------------------------------------------
    Total............................   100.0%   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.

  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. 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 $344.8 
billion or 92 percent of total grant outlays in 2003.
  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 $172.0 billion in 2003. 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 required 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

[[Page 243]]

annual appropriations process. Outlays for mandatory grant programs are 
estimated to be $221.0 billion in 2003. The three largest mandatory 
grant programs are Medicaid, with estimated outlays of $160.1 billion in 
2003, Temporary Assistance for Needy Families, $19.4 billion in 2003, 
and Food Stamp grants for State administration and child nutrition 
programs, with combined outlays of $14.6 billion in 2003.
  The funding level for discretionary grant programs is determined 
annually through appropriations acts. Outlays for discretionary grant 
programs are estimated to be $155.4 billion in 2003. Table 10-3 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

[[Page 244]]

Chapter 25 ``Budget System and Concepts and Glossary'' in this volume.
  Section C of Table 10-2 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 57.1 percent of the total 
in 1990 to 64.3 percent of the total in 2001. While payments for 
individuals will comprise the same percent of grants in 2003 as 2001, 
they are estimated to increase to an estimated 70.5 percent of the total 
by 2007.
---------------------------------------------------------------------------
  \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. 
Temporary Assistance for Needy Families, Food Stamps administration, 
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 payments for individuals have grown. In 2003, grants for 
physical capital are estimated to be 15.2 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 20.5 percent of total grants in 
2003.
  Section C of Table 10-2 also shows these three categories in constant 
dollars. In constant 1996 dollars, total grants increase from $157.9 
billion in 1990 to an estimated $324.3 billion in 2003, 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 6.7 
percent per year; grants for physical capital an average of 3.9 percent 
per year, and other grants an average of 4.2 percent per year.
  In contrast to these increases, outlays for total grants in constant 
1996 dollars decreased during the 1980s, 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 17.7 percent in 2003. Grants as a 
percentage of domestic spending are estimated to be 23.2 percent in 
2003.
  As a percentage of total State and local expenditures, grants have 
increased from 21.0 percent in 1990 to 25.2 percent in 2001.
  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 23.0 percent of State and local gross investment in 2001.

     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 7, 
``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 17, ``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

[[Page 245]]

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 prepared by the Bureau of the 
Census.
  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 10-3, ``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 246]]



             Table 10-3. FEDERAL GRANTS TO STATE AND LOCAL GOVERNMENTS--BUDGET AUTHORITY AND OUTLAYS
                                            (in millions of dollars)
----------------------------------------------------------------------------------------------------------------
                                            Budget Authority                             Outlays
Function, Category, Agency and ---------------------------------------------------------------------------------
            Program                 2001         2002          2003          2001         2002          2003
                                  Actual      Estimate      Estimate       Actual      Estimate      Estimate
----------------------------------------------------------------------------------------------------------------
       NATIONAL DEFENSE
Discretionary:
  Federal Emergency Management
   Agency:
    Emergency management                47            91       71                47            91            71
     planning and assistance..
                               ---------------------------------------------------------------------------------
      Total, discretionary....          47            91       71                47            91            71
                               ---------------------------------------------------------------------------------
        Total, national                 47            91       71                47            91            71
         defense..............
                               =================================================================================
            ENERGY
Discretionary:
  Department of Energy:
    Energy Programs:
      Energy conservation.....         195           275      361               177           250           350
                               ---------------------------------------------------------------------------------
      Total, discretionary....         195           275      361               177           250           350
                               =================================================================================
Mandatory:
  Tennessee Valley Authority:
    Tennessee Valley Authority         315           329      338               315           329           338
     fund.....................
                               ---------------------------------------------------------------------------------
      Total, mandatory........         315           329      338               315           329           338
                               ---------------------------------------------------------------------------------
        Total, energy.........         510           604      699               492           579           688
                               =================================================================================
     NATURAL RESOURCES AND
          ENVIRONMENT
Discretionary:
  Department of Agriculture:
    Natural Resources
     Conservation Service:
      Watershed rehabilitation  ...........            2   ............  ...........            1   ............
       program................
      Resource conservation     ...........  ............  ............           1             1   ............
       and development........
      Emergency watershed               82            34       41                66            64            75
       protection.............
    Forest Service:
      State and private                236           221      133               131           215           160
       forestry...............
      Management of national             6             5        5                 6             5             5
       forest lands for
       subsistence uses.......
  Department of Commerce:
    National Oceanic and
     Atmospheric
     Administration:
      Operations, research,              5             5        5                 3             3             3
       and facilities.........
      Pacific coastal salmon           110           157      110                35           290           110
       recovery...............
  Department of the Interior:
    Office of Surface Mining
     Reclamation and
     Enforcement:
      Regulation and                    51            57       52                51            57            56
       technology.............
      Abandoned mine                   196           185      157               146           117           116
       reclamation fund.......
    Bureau of Reclamation:
      Bureau of Reclamation             12             7   ............          13            12             3
       loan subsidy...........
    United States Fish and
     Wildlife Service:
      Commercial salmon         ...........  ............  ............  ...........            5   ............
       fishery capacity
       reduction..............
      State and tribal                  50            60       60        ...........           20            38
       wildlife grants........
      Federal aid in wildlife           50   ............  ............          50   ............  ............
       restoration............
      Cooperative endangered           105            96       91                20            63           100
       species conservation
       fund...................
      Wildlife conservation              1   ............  ............           1   ............  ............
       and appreciation fund..
      Stewardship grants......  ...........           10       10        ...........            2             5
      Landowner incentive       ...........           40       50        ...........            6            16
       program................
      Miscellaneous permanent            3             3        3                 2             3             2
       appropriations.........
    National Park Service:
      Urban park and                    30            30   ............           1             8            21
       recreation fund........
      National recreation and            1             1   ............           1             1   ............
       preservation...........
      Land acquisition and              90           144      200                10            23            55
       State assistance.......
      Historic preservation             94            74       67                55           127            89
       fund...................
  Environmental Protection
   Agency:
    State and tribal                 3,671         3,738    3,464             3,548         3,466         3,737
     assistance grants \1\....
    Hazardous substance                171           171      175               141           170           170
     superfund................
    Leaking underground                 64            63       62                61            65            71
     storage tank trust fund..
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\       5,028         5,103    4,685             4,342         4,724         4,832
                               =================================================================================

[[Page 247]]

 
Mandatory:
  Department of the Interior:
    Bureau of Land Management:
      Miscellaneous permanent            7            15       27                 7            15            26
       payment accounts.......
    Minerals Management
     Service:
      National forests fund,             4             3        3                 4             3             3
       Payment to States......
      Leases of lands acquired           2             1        1                 2             1             1
       for flood control,
       navigation, and allied
       purposes...............
    United States Fish and
     Wildlife Service:
      Federal aid in wildlife          289           213      226               223           232           276
       restoration............
      Sport fish restoration..         301           357      338               291           311           331
    Departmental Management:
      Everglades watershed      ...........  ............  ............           6             6             6
       protection.............
      Everglades restoration             2   ............  ............           2             3             1
       account................
  Department of the Treasury:
    Financial Management
     Service:
      Payment to terrestrial             5             5        5                 5             5             5
       wildlife habitat
       restoration trust fund.
                               ---------------------------------------------------------------------------------
      Total, mandatory........         610           594      600               540           576           649
                               ---------------------------------------------------------------------------------
        Total, natural               5,638         5,697    5,285             4,882         5,300         5,481
         resources and
         environment \1\......
                               =================================================================================
          AGRICULTURE
Discretionary:
  Department of Agriculture:
    Departmental
     Administration:
      Outreach for socially              3             3        3                 2             3             3
       disadvantaged farmers..
    Cooperative State
     Research, Education, and
     Extension Service:
      Extension activities....         454           465      448               449           502           455
      Research and education           246           252      242               232           246           247
       activities.............
      Integrated activities...          19            15       15                 3            11            14
    Agricultural Marketing
     Service:
      Payments to States and             1             1        1                 1             1             1
       possessions............
    Farm Service Agency:
      State mediation grants..           3             3        3                 2             2             3
                               ---------------------------------------------------------------------------------
      Total, discretionary....         726           739      712               689           765           723
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Office of the Secretary:
      Fund for rural America..          10   ............  ............          11             4            11
    Farm Service Agency:
      Commodity Credit                  56           117      107                56           117           107
       Corporation fund.......
                               ---------------------------------------------------------------------------------
      Total, mandatory........          66           117      107                67           121           118
                               ---------------------------------------------------------------------------------
        Total, agriculture....         792           856      819               756           886           841
                               =================================================================================
  COMMERCE AND HOUSING CREDIT
Mandatory:
  Department of Commerce:
    National Oceanic and
     Atmospheric
     Administration:
      Promote and develop                5            11        4                 6            11             8
       fishery products and
       research pertaining to
       American fisheries.....
                               ---------------------------------------------------------------------------------
      Total, mandatory........           5            11        4                 6            11             8
                               ---------------------------------------------------------------------------------
        Total, commerce and              5            11        4                 6            11             8
         housing credit.......
                               =================================================================================
        TRANSPORTATION
Discretionary:
  Department of
   Transportation:
    Coast Guard:
      Boat safety.............  ...........  ............  ............           1   ............  ............
    Federal Aviation
     Administration:
      Grants-in-aid for                  3             3        4             2,020         2,801         3,273
       airports (Airport and
       airway trust fund) \1\.

[[Page 248]]

 
    Federal Highway
     Administration:
      State infrastructure      ...........           -6   ............           3             7             5
       banks..................
      Appalachian development   ...........          200   ............          83            92           106
       highway system.........
      Highway-related safety    ...........  ............  ............  ...........            1   ............
       grants.................
      Appalachian development          254   ............  ............           9           111            67
       highway system (Highway
       trust fund)............
      Federal-aid highways \1\          23            24       24            27,098        28,040        27,297
      Miscellaneous                    605           148   ............          58           408           257
       appropriations.........
      Miscellaneous highway          1,210           100   ............          71           306           309
       trust funds............
    Federal Motor Carrier
     Safety Administration:
      National motor carrier           160           191      173               110           180           183
       safety program.........
      Motor carrier safety....  ...........            5       10        ...........            4             9
      Border enforcement        ...........  ............      18        ...........  ............           16
       program................
    National Highway Traffic
     Safety Administration:
      Highway traffic safety           202           212      214               196           218           222
       grants.................
    Federal Railroad
     Administration:
      Emergency railroad        ...........  ............  ............           4   ............  ............
       rehabilitation and
       repair.................
      Local rail freight        ...........  ............  ............           1             1   ............
       assistance.............
      Alaska railroad                   30            20   ............          28            25            37
       rehabilitation.........
      Railroad research and              3             4        2                 2             2             3
       development............
      Conrail commuter          ...........  ............  ............           2             1   ............
       transition assistance..
    Federal Transit
     Administration:
      Research, training, and   ...........  ............  ............           1             1             1
       human resources........
      Job access and reverse           100           125      150                39            67            95
       commute grants.........
      Interstate transfer       ...........  ............  ............           3             3             2
       grants-transit.........
      Washington Metropolitan   ...........  ............  ............         116            54            36
       Area Transit Authority.
      Formula grants \1\......       4,517         3,565    3,839             4,078         3,713         3,535
      Capital investment             2,695         2,991    3,036             1,902         1,771         2,366
       grants \1\.............
      Transit planning and             156           101      105               102           132           139
       research...............
      Discretionary grants      ...........  ............  ............         722           714           386
       (Highway trust fund,
       mass transit account)..
    Research and Special
     Programs Administration:
      Pipeline safety.........          22            19       19                14            19            19
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\       9,980         7,702    7,594            36,663        38,671        38,363
                               =================================================================================
Mandatory:
  Department of
   Transportation:
    Federal Aviation
     Administration:
      Grants-in-aid for              2,594         3,173    3,400        ...........  ............  ............
       airports (Airport and
       airway trust fund) \1\.
    Federal Highway
     Administration:
      Federal-aid highways \1\      32,632        34,822   30,855        ...........  ............  ............
    Research and Special
     Programs Administration:
      Emergency preparedness            17            13       13                10            15            13
       grants.................
                               ---------------------------------------------------------------------------------
      Total, mandatory \1\....      35,243        38,008   34,268                10            15            13
                               ---------------------------------------------------------------------------------
        Total, transportation       45,223        45,710   41,862            36,673        38,686        38,376
         \1\..................
                               =================================================================================
    COMMUNITY AND REGIONAL
          DEVELOPMENT
Discretionary:
  Department of Agriculture:
    Rural Development:
      Rural community                1,090           710      696               803           684           673
       advancement program....
    Rural Utilities Service:
      Distance learning and             27            49       31                10            16            27
       telemedicine program...
    Rural Business--
     Cooperative Service:
      Rural cooperative                 33             8        9                 3            26            14
       development grants.....
    Forest Service:
      Southeast Alaska                   5   ............  ............           7             7             1
       economic disaster fund.
  Department of Commerce:
    Economic Development
     Administration:
      Economic development             443           353      335               356           479           450
       assistance programs....
  Department of Housing and
   Urban Development:
    Public and Indian Housing
     Programs:
      Moving to work..........  ...........  ............  ............           3             3   ............
    Community Planning and
     Development:
      Community development          5,112         7,000    4,732             4,939         5,235         5,878
       block grants \1\.......

[[Page 249]]

 
      Urban development action  ...........  ............  ............           1            10            10
       grants.................
      Community development             30            15        7                 7            11            15
       loan guarantees subsidy
      Brownfields                       25            25       25                 4            26            31
       redevelopment..........
      Empowerment zones/               185            45   ............          31            89           104
       enterprise communities.
    Office of Lead Hazard
     Control and Healthy
     Homes:
      Lead hazard reduction...         100           110      126                86            95           101
  Department of the Interior:
    Bureau of Indian Affairs:
      Operation of Indian              149           153      149               125           146           149
       programs...............
      Indian guaranteed loan             5             6        5                 4             6             5
       subsidy................
  Federal Emergency Management
   Agency:
    Emergency management               267           499    3,629               217           380         1,904
     planning and assistance
     \1\......................
    Disaster relief \1\.......       3,055         5,498    1,546             2,734         4,122         4,567
    National pre-disaster       ...........  ............     300        ...........  ............           75
     mitigation fund..........
    Disaster assistance for     ...........  ............  ............          46            54            19
     unmet needs..............
    National flood mitigation           20            20       20                13            21            23
     fund.....................
  Appalachian Regional                  70            64       59                86           105            87
   Commission.................
  Delta Regional Authority....          19             9        9        ...........            1             9
  Denali Commission...........          55            91       30                11            90            76
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\      10,690        14,655   11,708             9,486        11,606        14,218
                               =================================================================================
Mandatory:
  Department of the Interior:
    Bureau of Indian Affairs:
      Indian direct loan        ...........            4   ............           1             4   ............
       subsidy................
                               ---------------------------------------------------------------------------------
      Total, mandatory........  ...........            4   ............           1             4   ............
                               ---------------------------------------------------------------------------------
        Total, community and        10,690        14,659   11,708             9,487        11,610        14,218
         regional development
         \1\..................
                               =================================================================================
     EDUCATION, TRAINING,
    EMPLOYMENT, AND SOCIAL
           SERVICES
Discretionary:
  Department of Commerce:
    National
     Telecommunications and
     Information
     Administration:
      Public                            30            29       32                15            27            33
       telecommunications
       facilities, planning
       and construction.......
      Information                       22             6   ............           9            20            20
       infrastructure grants..
  Department of Education:
    Office of Elementary and
     Secondary Education:
      Reading excellence......         277           195   ............         124           263           258
      Indian education........         113           117      117                76           110           116
      Impact aid..............         987         1,136    1,133             1,021         1,146         1,116
      Chicago litigation        ...........  ............  ............           1             1   ............
       settlement.............
      Education reform........         611   ............  ............         987           888           241
      Education for the              9,102        11,650   13,325             8,619         9,353        11,783
       disadvantaged..........
      School improvement             4,432         6,959    6,501             2,721         4,269         5,992
       programs \1\...........
    Office of English Language
     Acquisition:
      English language                 353           622      622               344           477           570
       acquisition............
    Office of Special
     Education and
     Rehabilitative Services:
      Special education.......       5,817         8,371    9,391             5,552         6,625         7,895
      Rehabilitation services          137           181      207               118           236           198
       and disability research
      American Printing House           12            14       14                11            19            14
       for the Blind..........
    Office of Vocational and
     Adult Education:
      Vocational and adult           1,777         1,893    1,863             1,651         1,756         1,843
       education..............
    Office of Postsecondary
     Education:
      Higher education........         377           365      365               300           443           374
    Office of Student
     Financial Assistance:
      Student financial                 55            67   ............          43            63            54
       assistance.............
    Office of Educational
     Research and Improvement:
      Education research,              150   ............  ............          86           216            40
       statistics, and
       assessment.............
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Promoting safe and                 3            68      223                 3            17            88
       stable families........
      Children and families          7,607         8,080    8,130             6,614         7,403         7,967
       services programs......
    Administration on Aging:
      Aging services programs.       1,104         1,201    1,342               949         1,137         1,295

[[Page 250]]

 
  Department of the Interior:
    Bureau of Indian Affairs:
      Operation of Indian              243           271      251               230           270           251
       programs...............
  Department of Labor:
    Employment and Training
     Administration:
      Training and employment        4,090         3,827    3,399             3,132         4,025         4,201
       services \1\...........
      Community service                 97           101       97               102            99           100
       employment for older
       Americans..............
      State unemployment               193           167      156               119           201           217
       insurance and
       employment service
       operations \1\.........
      Unemployment trust fund.       1,049         1,052      874             1,100           896           890
  Corporation for National and
   Community Service:
    Domestic volunteer service          74            81      100                70            81            92
     programs, operating
     expenses.................
    National and community             242           213      339               239           228           275
     service programs,
     operating expenses.......
  Corporation for Public               360           375      390               360           375           390
   Broadcasting...............
  District of Columbia:
    District of Columbia
     General and Special
     Payments:
      Federal payment for               17            17       17                17            17            17
       resident tuition
       support................
  Institute of American Indian
   and Alaska Native Culture
   and Arts:
    Payment to the institute..  ...........  ............       1        ...........  ............            1
  National Endowment for the
   Arts:
    National Endowment for the          34            34       34                32            38            36
     Arts: grants and
     administration...........
    Challenge America arts               3             7        7                 1             6             7
     fund.....................
  Institute of Museum and
   Library Services:
    Office of Museum Services:          23            24       25                22            33            33
     grants and administration
    Office of Library                  203           193      175               167           226           226
     Services: grants and
     administration...........
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\      39,594        47,316   49,130            34,835        40,964        46,633
                               =================================================================================
Mandatory:
  Department of Education:
    Office of Special
     Education and
     Rehabilitative Services:
      Rehabilitation services        2,400         2,482    2,533             2,389         2,258         2,515
       and disability research
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Job opportunities and     ...........  ............  ............           4             4             3
       basic skills training
       program................
      Promoting safe and               300           305      305               258           281           284
       stable families........
      Social services block          1,725         1,700    1,700             1,852         1,803         1,793
       grant..................
  Department of Labor:
    Employment and Training
     Administration:
      Training and employment   ...........  ............    -138        ...........  ............           -4
       services...............
      Welfare to work jobs....  ...........  ............  ............         659           491           120
      State unemployment        ...........  ............     138        ...........  ............           84
       insurance and
       employment service
       operations.............
      Federal unemployment             132           132      132               141           131           132
       benefits and allowances
                               ---------------------------------------------------------------------------------
      Total, mandatory........       4,557         4,619    4,670             5,303         4,968         4,927
                               ---------------------------------------------------------------------------------
        Total, education,           44,151        51,935   53,800            40,138        45,932        51,560
         training, employment,
         and social services
         \1\..................
                               =================================================================================
            HEALTH
Discretionary:
  Department of Agriculture:
    Food Safety and Inspection
     Service:
      Salaries and expenses...          47            43       43                43            43            43
  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           2,218         2,538    2,499             1,820         2,283         2,492
       services...............
    Centers for Disease
     Control and Prevention:
      Disease control,               2,536         2,660    2,496             2,106         2,356         2,745
       research, and training
       \1\....................
    Substance Abuse and Mental
     Health Services
     Administration:
      Substance abuse and            2,156         2,289    2,307             2,098         2,229         2,234
       mental health services.
  Department of Labor:
    Occupational Safety and
     Health Administration:
      Salaries and expenses...          88            90       90                88            90            90
    Mine Safety and Health
     Administration:
      Salaries and expenses...           8             8        8                 8             8             8
                               ---------------------------------------------------------------------------------

[[Page 251]]

 
      Total, discretionary \1\       7,054         7,629    7,444             6,164         7,010         7,613
                               =================================================================================
Mandatory:
  Department of Health and
   Human Services:
    Centers for Medicare and
     Medicaid Services:
      Grants to States for         129,504       144,816   160,070          129,434       144,926       160,070
       medicaid...............
      State children's health        6,283         3,115    3,175             3,699         3,689         4,322
       insurance fund.........
      State grants and                  62            67       72                 2            18            30
       demonstrations.........
                               ---------------------------------------------------------------------------------
      Total, mandatory........     135,849       147,998   163,317          133,135       148,633       164,422
                               ---------------------------------------------------------------------------------
        Total, health \1\.....     142,903       155,627   170,761          139,299       155,643       172,035
                               =================================================================================
        INCOME SECURITY
Discretionary:
  Department of Agriculture:
    Food and Nutrition
     Service:
      Food donations programs.         151           151        1               134           150            45
      Commodity assistance             140           150      145               136           159           147
       program................
      Special supplemental           4,044         4,387    4,751             4,085         4,426         4,727
       nutrition program for
       women, infants, and
       children (WIC) \1\.....
      Child nutrition programs          13             7        7                 7             5             5
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Low income home energy         2,000         2,000    1,700             2,161         1,830         1,692
       assistance.............
      Refugee and entrant              324           353      344               345           351           385
       assistance.............
      Payments to States for         1,993         2,093    2,093             1,369         1,910         2,055
       the child care and
       development block grant
      Payments to States for    ...........  ............      60        ...........  ............            9
       foster care and
       adoption assistance....
  Department of Housing and
   Urban Development:
    Public and Indian Housing
     Programs:
      Public housing operating       3,235         3,495    3,530             3,137         3,385         3,458
       fund...................
      Drug elimination grants          309           -11   ............         309           312           247
       for low-income housing.
      Revitalization of                574           574      574               487           552           608
       severely distressed
       public housing (HOPE
       VI)....................
      Native Hawaiian Housing   ...........  ............      10        ...........  ............            1
       Block Grant............
      Public housing capital         2,993         2,843    2,426             3,550         3,656         3,553
       fund...................
      Native American housing          649           649      647               684           711           740
       block grant............
      Housing certificate fund       8,798        10,618   12,156             9,530        10,130        10,453
    Community Planning and
     Development:
      Homeless assistance            1,023         1,123    1,130               965         1,062         1,199
       grants.................
      Home investment                1,796         1,846    2,084             1,424         1,551         1,600
       partnership program....
      Youthbuild program......  ...........  ............  ............  ...........            1   ............
      Emergency food and        ...........  ............     153        ...........  ............          153
       shelter program........
      Housing opportunities            257           277      292               241           250           260
       for persons with AIDS..
      Rural housing and                 25            25   ............          17            25            25
       economic development...
    Housing Programs:
      Homeownership and                 -3   ............  ............          21            25             1
       opportunity for people
       everywhere grants (HOPE
       grants)................
      Housing for special              994         1,024    1,024               774           847           885
       populations............
  Department of Labor:
    Employment and Training
     Administration:
      State unemployment                 4             4   ............  ...........            8   ............
       insurance and
       employment service
       operations.............
      Unemployment trust fund.       2,439         2,793    2,734             2,364         2,793         2,734
  Federal Emergency Management
   Agency:
    Emergency food and shelter         140           140   ............         140           140   ............
     program..................
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\      31,898        34,541   35,861            31,880        34,279        34,982
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Agricultural Marketing
     Service:
      Funds for strengthening          717           888      640               776           696           640
       markets, income, and
       supply (section 32)....
    Food and Nutrition
     Service:
      Food stamp program......       3,874         3,899    3,698             3,664         3,833         3,900
      Child nutrition programs       9,466         9,932   10,407             9,409        10,167        10,665
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Payments to States for         3,517         3,908    3,978             3,706         4,018         4,074
       child support
       enforcement and family
       support programs.......
      Contingency fund........  ...........  ............   2,000        ...........  ............           45

[[Page 252]]

 
      Payments to States for         6,401         6,622    6,609             5,710         6,098         6,422
       foster care and
       adoption assistance....
      Child care entitlement         2,565         2,710    2,710             2,336         2,529         2,730
       to States..............
      Temporary assistance for      16,689        16,689   17,008            18,583        18,334        19,354
       needy families.........
                               ---------------------------------------------------------------------------------
      Total, mandatory........      43,229        44,648   47,050            44,184        45,675        47,830
                               ---------------------------------------------------------------------------------
        Total, income security      75,127        79,189   82,911            76,064        79,954        82,812
         \1\..................
                               =================================================================================
        SOCIAL SECURITY
Discretionary:
  Social Security
   Administration:
    Federal disability                   4            14       16        ...........           11            15
     insurance trust fund.....
                               ---------------------------------------------------------------------------------
      Total, discretionary....           4            14       16        ...........           11            15
                               ---------------------------------------------------------------------------------
        Total, social security           4            14       16        ...........           11            15
                               =================================================================================
VETERANS BENEFITS AND SERVICES
Discretionary:
  Department of Veterans
   Affairs:
    Veterans Health
     Administration:
      Medical care............         328           367      406               328           367           406
    Construction:
      Grants for construction          100           100      100                60            91            95
       of State extended care
       facilities.............
      Grants for the                    25            25       32                17            21            25
       construction of State
       veterans cemeteries....
                               ---------------------------------------------------------------------------------
      Total, discretionary....         453           492      538               405           479           526
                               ---------------------------------------------------------------------------------
        Total, veterans                453           492      538               405           479           526
         benefits and services
                               =================================================================================
   ADMINISTRATION OF JUSTICE
Discretionary:
  Department of Health and
   Human Services:
    Administration for
     Children and Families:
      Violent crime reduction   ...........  ............  ............          84            25             4
       programs...............
  Department of Housing and
   Urban Development:
    Fair Housing and Equal
     Opportunity:
      Fair housing activities.          46            46       46                39            37            46
  Department of Justice:
    Office of Justice
     Programs:
      Justice assistance \1\..         580         1,025      443               290           643         1,041
      State and local law            2,907         2,636    1,537               585         1,706         3,906
       enforcement assistance
       \1\....................
      Juvenile justice                 300           318      263               263           230           423
       programs...............
      Community oriented             1,040         1,051    1,382             1,356         1,057         1,015
       policing services......
      Violent crime reduction   ...........  ............  ............       3,092   ............  ............
       programs, State and
       local law enforcement
       assistance.............
  Executive Office of the
   President:
    Emergency response fund            710   ............  ............  ...........  ............  ............
     (primarily mass transit)
     \1\......................
  Equal Employment Opportunity
   Commission:
    Salaries and expenses.....          30            30       30                30            30            30
  Federal Drug Control
   Programs:
    High-intensity drug                171           226      206               136           182           218
     trafficking areas program
     \1\......................
  State Justice Institute:
    State Justice Institute:             7             3   ............           7             2   ............
     salaries and expenses....
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\       5,791         5,335    3,907             5,882         3,912         6,683
                               =================================================================================
Mandatory:
  Department of Justice:
    Legal Activities and U.S.
     Marshals:
      Assets forfeiture fund..         228           203      215               200           214           190
    Office of Justice
     Programs:
      Crime victims fund......         484           558      592               437           450           668
  Department of the Treasury:
    Departmental Offices:
      Treasury forfeiture fund          94            88       88                94            88            88
                               ---------------------------------------------------------------------------------

[[Page 253]]

 
      Total, mandatory........         806           849      895               731           752           946
                               ---------------------------------------------------------------------------------
        Total, administration        6,597         6,184    4,802             6,613         4,664         7,629
         of justice \1\.......
                               =================================================================================
      GENERAL GOVERNMENT
Discretionary:
  Department of the Interior:
    Bureau of Land Management:
      Payments in lieu of              199           210      165               197           210           165
       taxes..................
    Insular Affairs:
      Trust Territory of the    ...........  ............  ............           1             2             2
       Pacific Islands........
  Department of Labor:
    Employment and Training
     Administration:
      Workers compensation      ...........          175   ............  ...........          140            35
       programs...............
  Department of the Treasury:
    Internal Revenue Service:
      Processing, assistance,           10            11       11                10            11            11
       and management.........
  District of Columbia:
    District of Columbia
     Courts:
      Federal payment to the           105           112      159                95           112           154
       District of Columbia
       courts.................
      Defender services in              34            34       32                28            34            32
       District of Columbia
       courts.................
      Crime victims                     18   ............  ............  ...........           18   ............
       compensation fund......
      Federal payment for       ...........           24   ............  ...........           21             3
       family court act.......
    District of Columbia
     Corrections:
      Payment to the District          134            30   ............         144            69   ............
       of Columbia corrections
       trustee, operations....
    District of Columbia
     General and Special
     Payments:
      Federal support for               49            31        1                22            56             1
       economic development
       and management reforms
       in the District........
      Federal payment for       ...........          216       15        ...........          216            15
       emergency planning and
       security cost in the
       District of Columbia
       \1\....................
                               ---------------------------------------------------------------------------------
      Total, discretionary \1\         549           843      383               497           889           418
                               =================================================================================
Mandatory:
  Department of Agriculture:
    Forest Service:
      Forest Service permanent         322           393      398               200           393           398
       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           13           114      115                 9           108           115
       payment accounts.......
    Minerals Management
     Service:
      Mineral leasing and            1,045           666      670             1,045           666           670
       associated payments....
    United States Fish and
     Wildlife Service:
      National wildlife refuge          17            21       21                18            21            21
       fund...................
    Insular Affairs:
      Assistance to                     78            79       70                87            71            78
       territories............
      Payments to the United           106           106      106               105           106           106
       States territories,
       fiscal assistance......
  Department of the Treasury:
    Bureau of Alcohol, Tobacco
     and Firearms:
      Internal revenue                 334           246      235               334           246           235
       collections for Puerto
       Rico...................
    United States Customs
     Service:
      Refunds, transfers, and           90           105      107                90           105           107
       expenses of operation,
       Puerto Rico............
  Corps of Engineers--Civil
   Works:
    Permanent appropriations..  ...........            8        8        ...........            8             8
                               ---------------------------------------------------------------------------------
      Total, mandatory........       2,008         1,741    1,733             1,891         1,727         1,741
                               ---------------------------------------------------------------------------------
        Total, general               2,557         2,584    2,116             2,388         2,616         2,159
         government \1\.......
                               =================================================================================
          Total, Grants.......     334,697       363,653   375,392          317,250       346,462       376,419
            Discretionary.....     112,009       124,735   122,410          131,067       143,651       155,427
            Mandatory.........     222,688       238,918   252,982          186,183       202,811       220,992
----------------------------------------------------------------------------------------------------------------
\1\ Includes funding for the Emergency Response Fund enacted in response to the events of September 11, 2001.
  For additional information on this funding, see the 2003 Budget volume.