Recap: FY2025 Senate Appropriations Subcommittee on the Legislative Branch Hearings
BY TAYLOR J SWIFT
Over the past several weeks, the Senate Appropriations Subcommittee on the Legislative Branch held three hearings that brought funding priorities for the Legislative Branch into sharper focus. These hearings were conducted swiftly in the wake of the delayed approval of the FY2024 bills on March 22, 2024, and amid a leadership shuffle within the GOP majority in the House.
The Legislative Branch Appropriations bill provides funding for various Congressional operations, support agencies, and offices, including the House of Representatives, Senate, Joint Items, Capitol Police, Office of Congressional Workplace Rights, Congressional Budget Office (CBO), Architect of the Capitol (AOC), Library of Congress (LOC) including the Congressional Research Service (CRS), Government Publishing Office (GPO), Government Accountability Office (GAO), Congressional Office for International Leadership (COIL), and the John C. Stennis Center. Historically, since FY1976, the Legislative branch has accounted for an average of approximately 0.40% of the total discretionary budget authority.
On the House side, the House Legislative Branch Appropriations Subcommittee favorably reported the FY2025 Legislative Branch Appropriations bill. (Read a comprehensive recap of the House Leg branch funding hearings.) The full House Appropriations Committee will release the Legislative Branch Appropriations bill report before its markup on Thursday, June 12, 2024. Additionally, the House Full Appropriations Committee approved its FY2025 Subcommittee allocations.
As the Senate subcommittee now turns to drafting its FY2025 bill and report, below are key highlights from the budget requests and inquiries posed by lawmakers for various Senate entities and support offices. The committee did not hold a Member Day and Public Witness hearing.
Budget Hearing – Fiscal Year 2025 Request for the Government Accountability Office, the Government Publishing Office, and the Congressional Budget Office - May 8, 2024
Government Accountability Office (GAO)
FY25 Budget Request: $916.0 million, 12.53% increase
President’s FY25 Proposed: $915.96 million
FY24 Enacted: $813.97 million
GAO Comptroller General Gene L. Dodaro (written testimony) expressed gratitude for the subcommittee's ongoing support and requested $916 million funding for 3,600 full-time equivalent employees in FY25, a 12.53% increase from the FY 24 enacted level. Dodaro highlighted the agency's return on investment, with $113 returned for every dollar spent. Dodaro noted that the GAO does work for 93% of committees and is receiving more requests from personal offices, with over 215 members of Congress seeking technical assistance.
Dodaro emphasized the GAO's expanded capacity in areas such as science and technology, national security, and cybersecurity. He mentioned the latest National Defense Authorization Act (NDAA) had 115 GAO study mandates, covering major weapon system development, nuclear weapon modernization, and tracking funding to Ukraine. The GAO is also focusing on artificial intelligence and combating fraud, particularly in the wake of the pandemic. Dodaro highlighted recommendations to recover billions of dollars in Medicare and Medicaid fraud.
Government Publishing Office (GPO)
FY 25 Budget Request: $136 million, 3.1% increase
President’s FY25 Proposed: $136.09 million
FY 24 Enacted: $131.4 million
GPO Director Hugh Halpern (written testimony) requested a FY25 budget of $136 million, a 3.1% increase compared to the previous year’s enact level. Halpern discussed the agency's role as a manufacturing operation, producing Congress' documents and providing digital information through a trusted repository. He noted that only about 10% of the agency's operating budget is directly appropriated for the Federal Depository Library Program and printing for Congress.
Halpern highlighted the GPO's efforts to implement the Access to Congressionally Mandated Reports Act (ACMRA), with 331 reports from approximately 60 agencies now available online. He also discussed the development of the XPub system to modernize the publication of Congressional documents, including Congressionally mandated reports and the Congressional Serial Set. Halpern emphasized the need for adequate funding to meet increasing demands and support these initiatives.
Congressional Budget Office (CBO)
FY25 Budget Request: $73.50 million, 5% increase
President’s FY25 Proposed: $70.73 million
FY24 Enacted: $70.13 million
CBO Director Dr. Phillip L. Swagel (written testimony) requested a 3.5 million or 5% increase compared to FY24 to $73.5 million. He explained that this increase would enable the CBO to expand staff in key areas such as defense, homeland security, economic implications, healthcare, and social security. Swagel emphasized the CBO's commitment to providing Congress with the information they need when they need it, including cost estimates, real-time scoring of amendments, large analyses, and budget and economic projections. He mentioned the CBO's goal to grow from 267 to 276 staff by the end of the year and potentially further in FY25. Swagel also highlighted the CBO's efforts to enhance transparency by publishing data and models for outside groups to use.
When asked about the consequences of maintaining FY24 funding levels, all three agency heads expressed concerns about the potential impact on their operations. Dodaro warned of a smaller GAO with reduced services to Congress, particularly in areas like science and technology, national defense, and fraud prevention. Halpern noted that flat funding would hinder the GPO's ability to meet increasing demands, especially in the public information program. Swagel cautioned that while the CBO would prioritize key areas, tradeoffs would become more challenging.
The agency heads also discussed their efforts to leverage technology to enhance their services. Dodaro highlighted the GAO's move towards cloud-based infrastructure and the modernization of its document management system. Halpern provided an update on the XPub system, which is set to revolutionize the publication of congressional documents. Swagel mentioned the CBO's use of AI tools to assist in their work.
Budget Hearing – Fiscal Year 2025 Request for the Library of Congress and the Architect of the Capitol - May 15, 2024
Library of Congress (LOC)
FY25 Budget Request: $943.7 million, 5.1% increase
President’s FY25 Proposed: $920.45
FY24 Enacted: $895.57 million
Dr. Carla Hayden, the Librarian of Congress, (written testimony) outlined the LOC’s budget request of $943.7 million for FY25, which represents a 5.1% increase compared to FY 24 enacted levels. Dr. Hayden presented the LOC's strategic vision, emphasizing the need to enhance services, expand access, improve infrastructure, and foster innovation. Central to this plan is the integration of digital content and the development of staff capacity to support the growing digital collections. Dr. Hayden highlighted key initiatives, including expanding data analytics capabilities within the Congressional Research Service (CRS), enhancing digital accessibility for all users, and strengthening the contracting and grants directorate to support complex IT acquisitions.
Architect of the Capitol (AOC)
FY25 Budget Request: $1.03 billion, 8.8% increase
President’s FY25 Proposed: $1.02 billion
FY24 Enacted: $939.36 million
Acting AOC Joseph DiPietro (written testimony) presented a $1.03 billion budget request focused on physical security, life safety, and infrastructure needs across the Capitol campus. Notable projects include the refurbishment of the Senate Page residence, comprehensive renewal of Senate hearing rooms, and the modernization of elevators in Senate buildings. DiPietro emphasized the importance of these investments in ensuring the safety and functionality of the facilities.
Senator Van Hollen [D, MD] asked about the AOC's efforts to restore trust in its leadership following a challenging period.DiPietro highlighted the organization's focus on bringing in new talent, supporting employees, and advancing their careers. He expressed pride in the dedication of the AOC's frontline staff and reaffirmed the commitment to fully support them.
We note that since this hearing has taken place, Congress has officially selected a new Architect of the Capitol, Thomas Austin, who will serve out a ten-year term. Austin's appointment marks the first since Congress passed legislation in December authorizing a congressional commission to appoint and remove an AOC by a bipartisan majority vote. Previously, the president appointed architects based on Congressional recommendations.
When questioned about the impact of operating at or below FY24 funding levels, both Dr. Hayden and DiPietro acknowledged the potential setbacks to modernization efforts. Dr. Hayden noted that reduced funding would slow hiring and software development, impacting ongoing modernization projects. DiPietro highlighted the risks to critical infrastructure projects and personnel training initiatives.
Budget Hearing – Fiscal Year 2025 Request For The Senate Sergeant At Arms and The United States Capitol Police - May 22, 2024
Senate Sergeant At Arms (S SAA)
FY25 Budget Request: $345 million, 9% increase
President’s FY25 Proposed: N/A
FY24 Enacted: $310.82 million
Karen H. Gibson, Sergeant at Arms and Doorkeeper of the Senate (written testimony) presented a budget request of $345 million for FY2025, marking a significant $34 million or 9% increase compared to FY24 enacted level. Gibson outlined the key areas necessitating this increase, including cost of living adjustments for staff, the creation of 70 new positions to bolster the Sergeant at Arms' organizational capacity, residential and state office security enhancements, and ongoing cybersecurity and modernization initiatives.
Gibson outlined several key priorities for the Senate Sergeant at Arms, including the implementation of advanced access control measures, the development of predictive threat analysis capabilities, the establishment of a dedicated Senate intern resource office, and the expansion of the residential security system program to ensure the safety of Senators and their families in their homes.
Regarding district security, Gibson emphasized the importance of ensuring the safety and security of senators, their staff, and constituents in their respective states. The SAA coordinates daily with state offices to monitor and respond to various threats, including environmental hazards and potential demonstrations. Gibson highlighted ongoing efforts to enhance the physical security of state offices, such as creating secure reception areas and piloting the use of holistic film on glass surfaces to provide added security without creating a fortress-like appearance. Gibson stressed the effectiveness of security measures like cameras and locked doors in deterring and mitigating potential threats, citing specific instances where staff members were able to prevent suspicious individuals from entering their offices. However, she emphasized that proper training for staff members is the most critical aspect of ensuring state office security. Collaborating with Chief Manger, Gibson also addressed the issue of "swatting" and the efforts being made by the SAA, US Capitol Police, and FBI to identify and apprehend the perpetrators.
Gibson also discussed several planned improvements for the Senate workforce. Gibson mentioned that the Senate Employment Office has significantly improved its services by launching a new website, virtual information sessions, online resources, and an updated resume bank, leading to a substantial increase in registrants from 1,100 in 2020 to 5,500 in 2023. The office will soon roll out enhancements to the Senate Employment Bulletin, providing unique job links, automated application processes, and modern search tools for job seekers and office staff. In preparation for the transition to the 119th Congress, the S SAA has established a new office for Program Management and Congressional Transition, which is updating materials and planning for early consultation with incoming and departing Senators, as well as key stakeholders.
During the hearing, the proposed creation of a Senate Intern Resource Office garnered attention. Sergeant at Arms Gibson requested two full-time equivalent positions to support this new office, which aims to complement existing intern programs while maintaining independence from Senate employing offices. The primary objectives of the Senate Intern Resource Office include sharing best practices for intern hiring, providing handbook guidance and training support, connecting offices with funding rules and regulations, and coordinating standardized seminars and programs for interns across various Senate offices. Gibson emphasized that the office would work in partnership with the Secretary of the Senate to enhance the overall intern experience and ensure consistent support for these valuable members of the Senate community. The House recently created its own version of this office called the House Intern Resource Office.
United States Capitol Police (USCP)
FY 25 Budget Request: $906.00 million, 14% increase
President’s FY 25 Proposed: $900.39 million
FY 24 Enacted: $792.47 million
USCP Chief Thomas Manger (written testimony) followed with a request for $906 million, a substantial $114.8 million increase from FY2024. This proposed budget aims to address critical aspects of the department's operations, such as salary increases for existing personnel, overtime compensation, the addition of new sworn and civilian positions, protective services expansions, IT and cybersecurity investments, upgraded security equipment, enhanced training programs, and officer wellness initiatives.
Chief Manger emphasized the Capitol Police's primary objectives, which include increasing staffing levels to alleviate excessive overtime, proactively addressing the surge in threats against Members of Congress, and diligently preparing for upcoming high-profile events such as the inauguration and election. Manger also highlighted the department's efforts to enhance intelligence gathering and sharing capabilities to navigate the increasingly sophisticated threat landscape.
A recurring theme throughout the hearing was striking a balance between ensuring the security of the Capitol complex and maintaining its accessibility to the public. Senators acknowledged the importance of preserving the openness of the Capitol while recognizing the paramount need for robust security measures in light of the current threat environment. Both Gibson and Manger stressed the need for additional resources and personnel to effectively meet the growing security demands. Chief Manger asserted that the Capitol is currently safer than it was before January 6, highlighting the progress made in fortifying the Capitol's campus.
