[House Document 113-130]
[From the U.S. Government Publishing Office]


113th Congress, 2d Session - - - - - - - - - - - - House Document 113-130

 
                  A REQUEST FOR EMERGENCY SUPPLEMENTAL

                       APPROPRIATIONS FOR FY 2014

                               __________

                             COMMUNICATION

                                  from

                   THE PRESIDENT OF THE UNITED STATES

                              transmitting

 A EMERGENCY SUPPLEMENTAL APPROPRIATIONS REQUEST FOR FISCAL YEAR (FY) 
                                  2014




July 10, 2014.--Referred to the Committee on Appropriations and ordered 
                             to be printed
                                           The White House,
                                      Washington, DC, July 8, 2014.
Hon. John A. Boehner,
Speaker of the House of Representatives,
Washington, DC.
    Dear Mr. Speaker: On June 30, I provided an update on my 
Administration's efforts in addressing the urgent humanitarian 
situation on both sides of the Southwest border with an 
aggressive, unified, and coordinated Federal response. Today, I 
ask the Congress to consider the enclosed emergency 
supplemental appropriations request for Fiscal Year (FY) 2014 
that includes $3.7 billion to comprehensively address this 
urgent humanitarian situation.
    This funding would support a sustained border security 
surge through enhanced domestic enforcement, including air 
surveillance; expenses related to the repatriation and 
reintegration of migrants; associated transportation costs; 
additional immigration judge teams, immigration prosecutors, 
and immigration litigation attorneys to ensure cases are 
processed fairly and as quickly as possible; funding to address 
the root causes of migration; public diplomacy and 
international information programs; the operational costs of 
responding to the significant rise in apprehensions of 
unaccompanied children and adults traveling with children; and 
expenses associated with the appropriate care for those 
apprehended, consistent with Federal law, and the necessary 
medical response.
    I am also requesting $615 million for emergency wildfire 
suppression activities for FY 2014, and a new discretionary cap 
adjustment for wildfire suppression operations starting in FY 
2015. This funding would provide for the necessary expenses for 
wildfire suppression and rehabilitation activities this fiscal 
year so we can fight fires without having to resort to damaging 
transfers from our wildfire treatment and protection 
activities. Too often in recent years, this cycle of transfers 
has undermined our efforts to prepare for and reduce the 
severity of wildfires, which is both fiscally imprudent and 
self-defeating.
    My request includes language to support a discretionary cap 
adjustment to allow the Federal Government to respond to 
severe, complex, and threatening fires or a severe fire season 
in the same way as we fund other natural disasters such as 
hurricanes or earthquakes. This approach would provide funding 
certainty in future years for firefighting costs, free up 
resources to invest in areas that will promote long-term forest 
health and reduce fire risk, and maintain fiscal responsibility 
by addressing wildfire disaster needs through agreed-upon 
funding mechanisms.
    My Administration requests that the funding described above 
be designated as emergency requirements pursuant to section 
251(b)(2)(A) of the Balanced Budget and Emergency Deficit 
Control Act of 1985, as amended, (BBEDCA). In addition, my 
Administration requests that a new cap adjustment for wildfire 
suppression operations be added to section 251(b)(2) of BBEDCA.
    I urge the Congress to act expeditiously in considering 
this important request, the details of which are set forth in 
the enclosed letter from the Acting Director of the Office of 
Management and Budget.
    Finally, separate from this request, my Administration will 
continue to work with the Congress--following up on my letter 
to congressional leadership on June 30, 2014--to ensure that we 
have the legal authorities to maximize the impact of our 
efforts, including providing the Secretary of Homeland Security 
additional authority to exercise discretion in processing the 
return and removal of unaccompanied minor children from non-
contiguous countries like Guatemala, Honduras, and El Salvador, 
and increasing penalties for those who smuggle vulnerable 
migrants, like children.
            Sincerely,
                                                      Barack Obama.
                [Estimate No. 3, 113th Cong., 2nd Sess.]

                 Executive Office of the President,
                           Office of Management and Budget,
                                      Washington, DC, July 8, 2014.
The President,
The White House.
    Dear Mr. President: Submitted for your consideration is an 
emergency supplemental request for $3.7 billion to address the 
urgent humanitarian situation in the Rio Grande Valley areas of 
our Nation's southwest border. This request also includes $615 
million for emergency wildfire suppression activities for FY 
2014 and a new discretionary cap adjustment for wildfire 
suppression operations starting in FY 2015.
    As you know, while overall rates of apprehensions across 
our Southwest border remain at near historic lows, 
apprehensions and processing of children and individuals from 
Central America crossing the border in the Rio Grande Valley 
have continued at high rates. Your Administration continues to 
address this crisis with a whole-of-government response on both 
sides of the border. These actions will permit us to fulfill 
our legal and moral obligations to appropriately care for 
unaccompanied children who are apprehended, while taking 
aggressive steps to surge resources to our Southwest border to 
deter both adults and children from embarking on this dangerous 
journey, increase capacity for enforcement and removal 
proceedings. and quickly return recent unlawful border crossers 
to their home countries after appropriate humanitarian 
screenings are conducted and it is determined that no relief is 
available.
    To date, the Government-wide response includes efforts by 
the Departments of Homeland Security (DHS) and Justice (DOJ) to 
deploy additional enforcement resources--including immigration 
judges, Immigration and Customs Enforcement attorneys, and 
asylum officers--to focus on individuals and adults traveling 
with children from Central America and entering without 
authorization across the Southwest border. Part of this surge 
includes detention of adults traveling with children, as well 
as expanded use of the Alternatives to Detention program, to 
avoid a more significant humanitarian situation. DHS is working 
to secure additional space that satisfies applicable legal and 
humanitarian standards for detention of adults with children. 
This surge of resources means that cases are processed fairly 
and as quickly as possible, ensuring the protection of asylum 
seekers and refugees while enabling the prompt removal of 
individuals who do not qualify for asylum or other forms of 
relief from removal. Finally, to attack the criminal 
organizations and smuggling rings that are exploiting these 
individuals, agencies are surging law enforcement task forces 
in cooperation with our international partners, with a focus on 
stepped-up interdiction and prosecution.
    Under your direction, the Administration also continues to 
work closely with our Mexican and Central American partners to 
address the root causes of this problem, stem the flow of 
adults and unaccompanied children into the United States, and 
expand capacity to receive and reintegrate repatriated 
migrants. Following the Vice President's June 20th meeting with 
leaders from El Salvador, Guatemala, Honduras, and Mexico, to 
discuss our shared responsibility for promoting security, these 
countries committed to working together and with the United 
States to address the immediate humanitarian crisis as well as 
the long-term challenges in their countries. Secretary Kerry 
met with leaders from El Salvador, Guatemala, and Honduras on 
July 1st in Panama, and his remarks highlighted some of the 
challenges driving migration, the importance of applying the 
law and combating misinformation, and working together with 
Central American partners to address these challenges. We are 
working with our Central American partners, nongovernmental 
organizations, and other influential voices to send a clear 
message to potential migrants so that they understand the 
significant dangers of this journey and to make clear that they 
are not eligible for the Deferred Action for Childhood Arrivals 
process or earned citizenship provisions that are part of 
comprehensive immigration reform pending in the Congress. As 
part of this effort, we have also committed foreign assistance 
resources to improve the capacity of these countries to receive 
and reintegrate returned individuals and address the underlying 
security and economic issues that cause migration.
    While we are working across all of these channels, we also 
are focused on ensuring that sufficient resources and 
authorities exist to support a comprehensive approach to 
stemming this crisis. Accordingly, this request would provide 
funding to: support a sustained border security surge through 
enhanced domestic enforcement, including air surveillance; pay 
for expenses related to the repatriation and reintegration of 
migrants, associated transportation costs, and additional 
immigration judge teams, immigration prosecutors, and 
immigration litigation attorneys to ensure cases are processed 
fairly and as quickly as possible; address the root causes of 
migration; public diplomacy and international information 
programs; the operational costs of responding to the 
significant rise in apprehensions of unaccompanied children and 
adults traveling with children; and pay for expenses associated 
with the appropriate care for those apprehended, consistent 
with Federal law, including necessary medical responses.
    In addition, the request would provide resources necessary 
to support wildfire suppression and rehabilitation activities 
this year, and would fund these activities in a more fiscally 
sustainable manner going forward. As you know, too often in 
recent years, Federal funding for wildfire suppression has 
proved insufficient to address rising costs. When this happens, 
the Government is forced to transfer hundreds of millions of 
dollars away from critical forest programs to fund wildfire 
suppression activities. It forces the Government to delay or 
suspend, key fire preparedness, forest maintenance, research, 
and other activities, and creates a vicious cycle.
    Unfortunately, current projections of suppression needs 
indicate this cycle is set to repeat itself once again this 
year. The Department of Agriculture currently projects that the 
costs for fire suppression could exceed appropriated funding by 
over $600 million. The proposal you introduced in the Budget--
modeled on bipartisan proposals in both houses of the 
Congress--would break this cycle by budgeting for the most 
extreme fires just as we do for other disasters like 
hurricanes, tornadoes, and earthquakes, and to do so in a 
fiscally responsible way that would not increase the total 
amount of discretionary resources available to spend. The 
discretionary cap adjustment included in this request would re-
propose this approach.
    The amounts requested to address the urgent humanitarian 
situation in the Rio Grande Valley areas of our Nation's 
southwest border, and the wildfire suppression activities are 
designated as an emergency requirement pursuant to section 
251(b)(2)(A) of the Balanced Budget and Emergency Deficit 
Control Act of 1985, as amended (BBEDCA). In addition, this 
request includes a proposal to add a new cap adjustment for 
wildfire suppression operations to section 251(b)(2) of BBEDCA.
    The major categories of funding--in Agency order--are 
highlighted below:
Department of Agriculture Wildfire Management
     $615 million for wildfire suppression.
Department of Health and Human Services (HHS) Administration for 
        Children and Families
     $1.8 billion for additional capacity to care for 
unaccompanied children including through more stable, cost-
effective arrangements, while maintaining services for 
refugees; and the necessary medical response to the arrival of 
these children. With these funds, HHS will have the resources 
to be able to care for the children currently projected to come 
into the custody of the Department of Homeland Security.
Department of Homeland Security (DHS) Immigration and Customs 
        Enforcement (ICE)
     $879 million for the detention, prosecution, and 
removal of apprehended undocumented families;
     $116 million for transportation costs associated 
with the surge in apprehensions of unaccompanied children; and
     $109 million for expanded domestic and 
international immigration and customs investigatory and other 
enforcement efforts.
DHS Customs and Border Protection
     $364 million for operational costs associated with 
responding to the surge in the apprehensions of unaccompanied 
children and families;
     $29 million for expansion of the Border 
Enforcement Security Task Force program; and
     $39 million to increase air surveillance 
capabilities to improve detection and interdiction of illegal 
activity in the Rio Grande Valley region.
Department of Justice (DOJ) Administrative Review and Appeals
     $45.4 million for additional immigration judge 
teams to increase case processing;
     $2.5 million for expansion of the legal 
orientation program; and
     $15.0 million for direct legal representation 
services to children in immigration proceedings.

DOJ General Legal Activities

     $1.1 million for additional immigration litigation 
attorneys to support Federal agencies involved in detainee 
admission, regulation, and removal action.

Department of State (State) and Other International Programs (OIP) 
        Diplomatic and Consular Programs

     $5 million for public diplomacy and international 
information programs and support related to Central American 
migration issues.

State and OIP Economic Support Fund

     $295 million for the repatriation and 
reintegration of migrants to countries in Central America and 
to address the root causes of migration from these countries.

General Provisions

     Proposes to limit the authority of agencies 
appropriated funds under DHS to reprogram appropriations within 
an account and to transfer up to 30 percent between 
appropriations accounts with notification;
     Proposes authority to transfer up to $250 million 
between appropriations made available in this Act for the 
humanitarian situation at the border; and
     Proposes adjustment to the discretionary spending 
limits for wildfire suppression operations.

Recommendation

    I carefully reviewed this request and am satisfied that it 
is necessary at this time. Without supplemental funding, absent 
undertaking extraordinary measures, agencies will not have 
sufficient resources to adequately address this situation. HHS 
will be unable to address the influx of children by securing 
sufficient shelter capacity with the number of children held at 
Border Patrol stations continuing to increase, for longer 
periods of time. Going forward, HHS will be unable to set-up 
more stable, cost-effective arrangements for these children, 
Border Patrol agents will have to be re-assigned to child care 
duties from their border security work, and ICE will lack the 
resources needed to sufficiently expand detention and removal 
capacity for adults with children who cross the border 
illegally. In addition, without additional funds, DOJ will be 
unable to keep pace with its growing caseload, leading to 
longer wait times for those cases already on the docket. And 
absent dedicated resources in Central American countries, we 
will not make progress on the larger drivers of this 
humanitarian crisis.
    Therefore, I join the heads of the affected departments and 
agencies in recommending you transmit the proposals to the 
Congress.
            Sincerely,
                                               Brian Deese,
                                                   Acting Director.
    Enclosures.

                       DEPARTMENT OF AGRICULTURE


                             Forest Service


                        WILDLAND FIRE MANAGEMENT

    For an additional amount for ``Wildland Fire Management'' 
to cover necessary expenses for wildfire suppression and 
emergency rehabilitation activities of the Forest Service, 
$615,000,000, to remain available until expended: Provided, 
That such amount is designated by the Congress as an emergency 
requirement pursuant to section 251(b)(2)(A) of the Balanced 
Budget and Emergency Deficit Control Act of 1985, as amended: 
Provided further, That such amount shall be available only if 
the President designates such amount as an emergency 
requirement pursuant to section 251(b)(2)(A).
    This proposal would provide the Department of Agriculture 
an additional $615 million for the Forest Service Wildland Fire 
Management account in FY 2014. The latest Federal Land 
Assistance, Management, and Enhancement Act projection of fire 
suppression costs at the 90 percent confidence interval shows 
an upper-bound of $1.61 billion. When compared to the current 
appropriations level of $995 million, an additional $615 
million is needed to cover potential suppression costs and 
avoid the need for destabilizing transfers from other forest 
health and resilience activities. Any unused balances in FY 
2014 would remain available to cover wildfire suppression and 
emergency rehabilitation activities in future severe fire 
seasons.
    Without this additional funding, should suppression costs 
meet currently estimated levels, the Department of Agriculture 
would once again have to transfer fluids from other areas--such 
as brush disposal and hazardous fuels treatment, bridge, road 
and trail maintenance; capital construction; recreation; 
visitor safety projects; and timber sales--all of which are 
important not only for better fire management, but also for the 
local economies in and around Federal lands. This would also 
serve to perpetuate the cycle that has occurred in recent 
years, whereby agencies have had to delay or cancel investments 
in long-term priorities that can improve forest health and fire 
preparedness in order to meet short-term fire suppression 
needs.

                DEPARTMENT OF HEALTH AND HUMAN SERVICES


                Administration for Children and Families


                     REFUGEE AND ENTRANT ASSISTANCE

    For an additional amount for ``Refugee and Entrant 
Assistance'', $1,830,000,000, to be merged with and available 
for the same period and purposes as funds appropriated in 
Public Law 113-76 ``for carrying out such sections 414, 501, 
462, and 235'': Provided, That funds appropriated under this 
heading may also be used for other medical response expenses of 
the Department of Health and Human Services in assisting 
individuals identified under subsection (b) of such section 235 
and for acquisition, construction, improvement, repair, 
operation, and maintenance of real property and facilities: 
Provided further, That, the Secretary may, in this fiscal year 
and hereafter, accept and use money, funds, property, and 
services of any kind made available by gift, devise bequest, 
grant, or other donation for carrying out such sections: 
Provided further, That funds appropriated under this heading 
for medical response expenses may be transferred to and merged 
with the ``Public Health and Social Services Emergency Fund'': 
Provided further, That such transfer authority is subject to 
the regular notification procedures of the Committees on 
Appropriations: Provided further, That such amount is 
designated by the Congress as an emergency requirement pursuant 
to section 251(b)(2)(A) of the Balanced Budget and Emergency 
Deficit Control Act of 1985, as amended: Provided further, That 
such amount shall be available only if the President designates 
such amount as an emergency requirement pursuant to section 
251(b)(2)(A).
    This proposal would provide an additional $1.8 billion for 
the Department of Health and Human Services (HHS) to provide 
the appropriate care for unaccompanied children, consistent 
with Federal law, while maintaining services for refugees. The 
number of unaccompanied children apprehended while crossing the 
southwest border of the United States without authorization has 
increased substantially, resulting in an urgent humanitarian 
situation and straining the resources of the Departments of 
Homeland Security and HHS. With these funds, HHS could bring on 
additional capacity and put in place more stable, cost-
effective arrangements. The proposal would also fund the 
necessary medical response for unaccompanied children in Border 
Patrol facilities. This proposal would also provide the 
Secretary of HHS with the authority to accept gifts and acquire 
property for purposes of carrying out responsibilities related 
to the care and custody of unaccompanied children.

                    DEPARTMENT OF HOMELAND SECURITY


                U.S. Immigration and Customs Enforcement


                         SALARIES AND EXPENSES

    For an additional amount for ``Salaries and Expenses'' to 
cover necessary expenses to respond to the significant rise in 
unaccompanied children and adults with children at the 
southwest border and related activities, and for the necessary 
expenses for enforcement of immigration and customs law, 
detention and removals of adults with children crossing the 
border unlawfully, and investigations $1,103,995,000, to remain 
available until September 30, 2015: Provided, That such amount 
is designated by the Congress as an emergency requirement 
pursuant to section 251(b)(2)(A) of the Balanced Budget and 
Emergency Deficit Control Act of 1985, as amended: Provided 
further, That such amount shall be available only if the 
President designates such amount as an emergency requirement 
pursuant to section 251(b)(2)(A).
    This proposal would provide the Department of Homeland 
Security a total of $1.1 billion for Immigration and Customs 
Enforcement (ICE). Of this total, $879 million would pay for 
detention and removal of apprehended undocumented adults 
traveling with children, expansion of alternatives to detention 
programs for these individuals, and additional prosecution 
capacity for adults with children who cross the border 
unlawfully; $116 million would pay for transportation costs 
associated with the significant rise in apprehensions of 
unaccompanied children; and $109 million would provide for 
immigration and customs enforcement efforts, including 
expanding the Border Enforcement Security Task Force program, 
doubling the size of vetted units in El Salvador, Guatemala, 
and Honduras, and expanding investigatory activities by ICE 
Homeland Security Investigations.

                    DEPARTMENT OF HOMELAND SECURITY


                   U.S. Customs and Border Protection


                         SALARIES AND EXPENSES

    For an additional amount for ``Salaries and Expenses'' to 
cover necessary expenses to respond to the significant rise in 
unaccompanied children and adults with children at the 
southwest border and related activities, including the 
acquisition, construction, improvement, repair, and management 
of facilities, and for necessary expenses related to border 
security, $393,549,000, to remain available until September 30, 
2015: Provided, That such amount is designated by the Congress 
as an emergency requirement pursuant to section 251(b)(2)(A) of 
the Balanced Budget and Emergency Deficit Control Act of 1985, 
as amended: Provided further, That such amount shall be 
available only if the President designates such amount as an 
emergency requirement pursuant to section 251(b)(2)(A).
    This proposal would provide the Department of Homeland 
Security a total of $393 million for Customs and Border 
Protection (CBP). Of this total, $364 million would pay for 
operational costs of responding to the significant rise in 
apprehensions of unaccompanied children and families, including 
overtime and temporary duty costs for Border Patrol agents, 
contract services and facility costs to care for children while 
in CBP custody, and medical and transportation service 
arrangements; and $29 million for CBP to expand its role in 
Border Enforcement Security Task Force programs, increasing 
information-sharing and collaboration among the participating 
law enforcement agencies combatting transnational crime.

                    DEPARTMENT OF HOMELAND SECURITY


                   U.S. Customs and Border Protection


 AIR AND MARINE INTERDICTION, OPERATIONS, MAINTENANCE, AND PROCUREMENT

    For an additional amount for ``Air and Marine Interdiction, 
Operations, Maintenance, and Procurement'' to cover necessary 
expenses to respond to the significant rise in unaccompanied 
children and adults with children at the southwest border and 
related activities, $39,411,000, to remain available until 
September 30, 2015: Provided, That such amount is designated by 
the Congress as an emergency requirement pursuant to section 
251(b)(2)(A) of the Balanced Budget and Emergency Deficit 
Control Act of 1985, as amended: Provided further, That such 
amount shall be available only if the President designates such 
amount as an emergency requirement pursuant to section 
251(b)(2)(A).
    This proposal would provide the Department of Homeland 
Security $39.4 million for Customs and Border Protection to 
increase air surveillance capabilities in response to the 
significant rise in apprehensions of unaccompanied children. 
The funding would support 16,526 additional flight hours above 
the level requested in the President's FY 2015 Budget for 
border surveillance and 16 additional crews for unmanned aerial 
systems to improve the detection and interdiction of illegal 
activity at the border.

                    DEPARTMENT OF HOMELAND SECURITY


                           GENERAL PROVISIONS

    Sec. __. (a) None of the funds provided by this title shall 
be available for obligation or expenditure through a 
reprogramming of funds that proposes to use funds directed for 
a specific activity by either of the Committees on 
Appropriations of the Senate or the House of Representatives 
for a different purpose unless the Committees on Appropriations 
of the Senate and the House of Representatives are notified 15 
days in advance of such reprogramming of funds.
    (b) Not to exceed 30 percent of any appropriation made 
available by this title may be transferred between such 
appropriations, but no such appropriation, except as otherwise 
specifically provided, shall be increased by more than 50 
percent by such transfers: Provided, That any transfer under 
this section shall be treated as a reprogramming of funds under 
subsection (a) and shall not be available for obligation unless 
the Committees on Appropriations of the Senate and the House of 
Representatives are notified 15 days in advance of such 
transfer.
    This proposal would limit the authority of agencies 
appropriated funds under this title to reprogram appropriations 
within an account, and would provide the authority to transfer 
up to 30 percent between appropriations accounts with 15-day 
advance notification to the Committees.

                         DEPARTMENT OF JUSTICE


                         General Administration


                   ADMINISTRATIVE REVIEW AND APPEALS

    For an additional amount for ``Administrative Review and 
Appeals'' to cover necessary expenses to respond to the 
significant rise in unaccompanied children and adults with 
children at the southwest border and related activities, 
$62,900,000, to remain available until September 30, 2015: 
Provided, That such amount is designated by the Congress as an 
emergency requirement pursuant to section 251(b)(2)(A) of the 
Balanced Budget and Emergency Deficit Control Act of 1985, as 
amended: Provided further, That such amount shall be available 
only if the President designates such amount as an emergency 
requirement pursuant to section 251(b)(2)(A).
    This proposal would provide the Department of Justice a 
total of $62.9 million for Administrative Review and Appeals. 
Of the total, $45.4 million would be to hire approximately 40 
additional immigration judges and support teams, including 
those anticipated to be hired on a temporary basis. This 
funding would also expand courtroom capacity including 
additional video conferencing and other equipment in support of 
the additional immigration judge teams. These additional 
resources, when combined with the FY 2015 Budget request for 35 
additional teams would provide sufficient capacity to process 
an additional 55,000 to 75,000 cases annually.
    This proposal would provide $2.5 million to expand the 
legal orientation program that provides direct assistance to 
adults and custodians of children in the immigration court 
system and $15.0 million to provide direct legal representation 
services to children in immigration proceedings. These programs 
and services have been found to increase appearance rates in 
immigration proceedings and reduce the length of time it takes 
to adjudicate cases.

                         DEPARTMENT OF JUSTICE


                   Legal Activities and U.S. Marshals


            SALARIES AND EXPENSES, GENERAL LEGAL ACTIVITIES

    For an additional amount for ``Salaries and Expenses, 
General Legal Activities'' to cover necessary expenses to 
respond to the significant rise in unaccompanied children and 
adults with children at the southwest border and related 
activities $1,100,000, to remain available until September 30, 
2015: Provided, That such amount is designated by the Congress 
as an emergency requirement pursuant to section 251(b)(2)(A) of 
the Balanced Budget and Emergency Deficit Control Act of 1985, 
as amended: Provided further, That such amount shall be 
available only if the President designates such amount as an 
emergency requirement pursuant to section 251(b)(2)(A).
    This proposal would provide the Department of Justice $1.1 
million to hire additional immigration litigation attorneys to 
support Federal agencies involved in detainee admission, 
regulation, and removal actions.

          DEPARTMENT OF STATE AND OTHER INTERNATIONAL PROGRAMS


                   Administration of Foreign Affairs


                    DIPLOMATIC AND CONSULAR PROGRAMS

    For an additional amount for ``Diplomatic and Consular 
Programs'', $5,000,000, to remain available until September 30, 
2015, which may be made available for public diplomacy and 
international information programs and support related to 
Central American migration issues: Provided That such amount is 
designated by the Congress as an emergency requirement pursuant 
to section 251(b)(2)(A) of the Balanced Budget and Emergency 
Deficit Control Act of 1985, as amended: Provided further, That 
such amount shall be available only if the President designates 
such amount as an emergency requirement pursuant to section 
251(b)(2)(A).
    This proposal would provide an additional $5 million under 
Department of State and Other International Programs to support 
State Department media campaigns in Mexico, Guatemala, El 
Salvador, and Honduras, targeting potential migrants and their 
families. The campaigns will emphasize the dangers of the 
journey, deliver the message that unaccompanied children are 
not given a permit to stay in the United States, and highlight 
a shared community responsibility for the welfare of 
unaccompanied children. Activities will include media tours, 
press interviews, and all media relations as well as 
programmatic oversight. Funds would also support youth programs 
to develop skills and leadership among potential migrants.

          DEPARTMENT OF STATE AND OTHER INTERNATIONAL PROGRAMS


                   International Security Assistance


                         ECONOMIC SUPPORT FUND

    For an additional amount for ``Economic Support Fund'', 
$295,000,000, to remain available until September 30, 2015, for 
necessary expenses related to the repatriation and 
reintegration of migrants (including unaccompanied children and 
adults traveling with children) to countries in Central 
America, to address the root causes of migration from countries 
in Central America, and to help the countries of Central 
America build capacity to better control their borders, 
notwithstanding any other provision of law: Provided, That 
assistance under this heading may also be provided for transit 
countries assisting in repatriation efforts: Provided further 
That the Department of State and the United States Agency for 
International Development shall develop metrics related to 
repatriation and reintegration of migrants to measure progress 
and assess cooperation by recipient governments in Central 
America, and that continued funding beyond initial assistance 
for addressing repatriation and reintegration efforts may be 
contingent on cooperation by Central American governments on 
progress against such metrics: Provided further That funds 
appropriated in this paragraph may be transferred to funds made 
available under the headings ``Complex Crises Fund'' and 
``International Narcotics Control and Law Enforcement'' in 
Titles III and IV of acts making appropriations for the 
Department of State, foreign operations, and related programs, 
and may be further transferred under relevant authorities: 
Provided further, That such transfer authority is in addition 
to any other transfer authority provided by this or any other 
Act: Provided further, That such amount is designated by the 
Congress as an emergency requirement pursuant to section 
251(b)(2)(A) of the Balanced Budget and Emergency Deficit 
Control Act of 1985, as amended: Provided further, That such 
amount shall be available only if the President designates such 
amount as an emergency requirement pursuant to section 
251(b)(2)(A).
    This proposal would provide an additional $295 million to 
support efforts to repatriate and reintegrate migrants to 
Central America, to help the governments in the region better 
control their borders, and to address the underlying root 
causes driving migration, i.e. creating the economic, social, 
governance, and citizen security conditions to address factors 
that are contributing to significant increases in migration to 
the United States.
    Funding will be used to increase the capacity of Central 
American governments to receive and reintegrate repatriated 
migrants. For example, funding will expand existing 
repatriation centers in El Salvador, Guatemala, and Honduras, 
and provide associated training to immigration officials. As 
appropriate, assistance will facilitate transportation and the 
rapid and humane processing of migrants in country. In 
addition, funding may expand the capacity of governments and 
NGOs to provide services for returned migrants. Reintegration 
assistance will focus broadly on building the capacity of 
national governments, local officials, and civil society actors 
to develop sustainable community networks and cross-referral 
systems and identify those most at risk of returning to the 
United States.
    Reception assistance will also aim to build the capacity of 
countries of origin to implement the voluntary Regional 
Guidelines for the Attention of Unaccompanied Children that 
were endorsed by the member countries of the Regional 
Conference on Migration in 2009. Assistance could be provided 
to foreign countries in the region, countries that have 
detained migrants transiting their territory before they enter 
the United States and that seek assistance in repatriating 
those migrants to their country of origin.
    Funding will also be provided to address the underlying 
root causes of migration. This will help countries in the 
region address the economic, social, governance, and 
institutional factors that contribute to out-migration 
including endemic poverty, lack of educational, vocational, and 
employment opportunities, and high rates of criminal gang 
activity, other violent crime, and narcotics and human 
trafficking. For example, assistance may be used to support 
expanded law enforcement capacity and capabilities, building on 
and expanding efforts to improve citizen security; to promote 
economic growth and jobs, e.g. through small business 
development, vocational training, and to support rural farm 
incomes; or for programs that target at-risk youths to reduce 
the influence of gangs. In addition, assistance will be used to 
help countries in the region build their capacity to control 
their borders. This could include training or equipment to 
improve customs and border control to stem illicit migration 
while improving the flow of licit goods and trade across 
borders.
    To allow a whole-of-government approach and to allow funds 
to be implemented by the most appropriate agency, this language 
uses existing transfer authorities to allow State and USAID to 
transfer funds as necessary to other agencies (e.g. the 
Department of Justice, Millennium Challenge Corporation).
    To improve the alignment of interests between the United 
States and partner governments in Central America, State and 
USAID will devise metrics to measure progress on repatriation 
and reintegration efforts, and will regularly assess 
cooperation by recipient governments in Central America and 
progress against these metrics and factor the results into 
decisions on continuing repatriation and reintegration 
assistance funding.

                      GENERAL PROVISIONS--THIS ACT

SEC. __. TRANSFER AUTHORITY.

    Not to exceed $250,000,000 of any appropriation made 
available in this Act may be transferred between such 
appropriations (excluding the appropriation for ``Wildland Fire 
Management''): Provided, That the Committees on Appropriations 
of the Senate and the House of Representatives are notified 15 
days in advance of any such transfer by the head of the 
transferor agency.

SEC. __. WILDFIRE DISASTER FUNDING AUTHORITY.

    (a) In General.--Section 251(b)(2) of the Balanced Budget 
and Emergency Deficit Control Act of 1985 (2 U.S.C. 901(b)(2)) 
is amended by adding at the end the following:
                  ``(E) FLAME wildfire suppression.--
                          ``(i) If a bill or joint resolution 
                        making appropriations for a fiscal year 
                        is enacted that specifies an amount for 
                        wildfire suppression operations in the 
                        Wildland Fire Management accounts at 
                        the Department of Agriculture or the 
                        Department of the Interior, then the 
                        adjustments for that fiscal year shall 
                        be the amount of additional new budget 
                        authority provided in that Act for 
                        wildfire suppression operations for 
                        that fiscal year, but shall not 
                        exceed--
                                  ``(I) for fiscal year 2015, 
                                $1,410,000,000 in additional 
                                new budget authority;
                                  ``(II) for fiscal year 2016, 
                                $1,460,000,000 in additional 
                                new budget authority;
                                  ``(III) for fiscal year 2017, 
                                $1,557,000,000 in additional 
                                new budget authority;
                                  ``(IV) for fiscal year 2018, 
                                $1,778,000,000 in additional 
                                new budget authority;
                                  ``(V) for fiscal year 2019, 
                                $2,030,000,000 in additional 
                                new budget authority;
                                  ``(VI) for fiscal year 2020, 
                                $2,319,000,000 in additional 
                                new budget authority;
                                  ``(VII) for fiscal year 2021, 
                                $2,650,000,000 in additional 
                                new budget authority;
                                  ``(VIII) for fiscal year 
                                2022, $2,690,000,000, in 
                                additional new budget 
                                authority;
                                  ``(IX) for fiscal year 2023, 
                                $2,690,000,000, in additional 
                                new budget authority; and
                                  ``(X) for fiscal year 2024, 
                                $2,690,000,000, in additional 
                                new budget authority.
                          ``(ii) As used in this subparagraph--
                                  ``(I) the term `additional 
                                new budget authority' means the 
                                amount provided for a fiscal 
                                year, in excess of 70 percent 
                                of the average costs for 
                                wildfire suppression operations 
                                over the previous 10 years, in 
                                an appropriation Act and 
                                specified to pay for the costs 
                                of wildfire suppression 
                                operations; and
                                  ``(II) the term `wildfire 
                                suppression operations' means 
                                the emergency and unpredictable 
                                aspects of wildland 
                                firefighting including support, 
                                response, and emergency 
                                stabilization activities; other 
                                emergency management 
                                activities; and funds necessary 
                                to repay any transfers needed 
                                for these costs.
                          ``(iii) The average costs for 
                        wildfire suppression operations over 
                        the previous 10 years shall be 
                        calculated annually and reported in the 
                        President's Budget submission under 
                        section 1105(a) of title 31, United 
                        States Code, for each fiscal year.''.
    (b) Disaster Funding.--Section 251(b)(2)(D) of the Balanced 
Budget and Emergency Deficit Control Act of 1985 (2 U.S.C. 
901(b)(2)(D)) is amended--
          (1) in clause (i)--
                  (A) in subclause (I), by striking ``and'' and 
                inserting ``plus'';
                  (B) in subclause (II), by striking the period 
                and inserting ``; less''; and
                  (C) by adding the following:
                                  ``(III) the additional new 
                                budget authority provided in an 
                                appropriation Act for wildfire 
                                suppression operations pursuant 
                                to subparagraph (E) for the 
                                preceding fiscal year.''; and
          (2) by adding at the end the following:
                          ``(v) Beginning in fiscal year 2017 
                        and in subsequent fiscal years, the 
                        calculation of the `average funding 
                        provided for disaster relief over the 
                        previous 10 years' shall include for 
                        each year within that average the 
                        additional new budget authority 
                        provided in an appropriation Act for 
                        wildfire suppression operations 
                        pursuant to subparagraph (E) for the 
                        preceding fiscal year.''.
    The Transfer Authority proposal would provide the authority 
to transfer up to $250,000,000 between appropriations made 
available in this Act with 15-day advance notification to the 
Committees. Given the evolving nature of the Government's 
response to the surge in arrivals at the southwest border of 
unaccompanied children and adults traveling with children, this 
authority will permit flexibility in addressing critical 
operational needs as they arise.
    The Wildfire Disaster Funding Authority provision provides 
a new framework for funding fire suppression by creating a cap 
adjustment to fund extraordinary fire costs in the same manner 
as other disasters such as hurricanes or earthquakes. This 
proposal does not increase overall discretionary spending, as 
the provision reduces the ceiling for the existing disaster 
relief cap adjustment by an equivalent amount. Fire is a 
natural occurrence that can be highly beneficial to landscapes 
when managed properly; however, population growth near forests 
and rangelands, past management practices, and a changing 
climate have dramatically increased wildfire risk and resulting 
costs. Since appropriated suppression funds in most years have 
not been adequate to cover suppression costs, the Departments 
of Agriculture and the Interior have relied on damaging funding 
transfers that reduce land management and other preparedness 
activities designed to reduce the impact of wildland fires in 
the future. This situation calls for a fundamental change in 
how wildfire suppression is funded to help reduce fire risk, 
manage landscapes more holistically, and increase the 
resiliency of the Nation's forests and rangelands and the 
communities that border them.

                                  
