The full text on this page is automatically extracted from the file linked above and may contain errors and inconsistencies.
L^vyjiy^ise L OF THE UNITED STATES GOVERNMENT FISCAL YEAR 1981 THE BUDGET DOCUMENTS Data and analyses relating to the budget for 1981 are published in four documents: The Budget of the United States Government, 1981 contains the Budget Message of the President and presents an overview of the President's budget proposals. It includes explanations of spending programs in terms of national needs, agency missions, and basic programs, and an analysis of estimated receipts including a discussion of the President's tax program. This document also contains a description of the budget system and various summary tables on the budget as a whole. The United States Budget in Brief, 1981 is designed for use by the general public. It provides a more concise, less technical overview of the 1981 budget than the above volume. Summary and historical tables on the Federal budget and debt are also provided, together with graphic displays. The Budget of the United States Government„ 1981—Appendix contains detailed information on the various appropriations and funds that comprise the budget. The Appendix contains more detailed information than any of the other budget documents. It includes for each agency: the proposed text of appropriation language, budget schedules for each account, new legislative proposals, explanations of the work to be performed and the funds needed, proposed general provisions applicable to the appropriations of entire agencies or groups of agencies, and schedules of permanent positions. Supplemental and rescission proposals for the current year are presented separately. Information is also provided on certain activities whose outlays are not part of the budget totals. Special Analyses, Budget of the United States Government, 1981 contains analyses that are designed to highlight specified program areas or provide other significant presentations of Federal budget data. This document includes information about: alternative views of the budget, i.e., current services and national income accounts; economic and financial analyses of the budget covering Government finances and operations as a whole, and Government-wide program and financial information for Federal civil rights and research and development programs; and some major accomplishments. Instructions for purchasing copies of any of these documents are on the last two pages of this volume. GENERAL NOTES 1. All years referred to are fiscal years, unless otherwise noted. 2. Detail in the tables, text, and charts of this volume may not add to the totals because of rounding. II TABLE OF CONTENTS Page PART 1. THE BUDGET MESSAGE OF THE PRESIDENT PART 2. BUDGET SUMMARY Overview of the budget Major budget proposals Proposed legislation that would reduce Federal spending Budget authority Federal civilian employment and pay Federal debt Control of Federal credit activities Making Government work better PART 3. ECONOMIC ASSUMPTIONS AND THE LONG-RANGE BUDGET OUTLOOK Economic assumptions • The 5-year budget outlook The longer range budget outlook PART 4. BUDGET RECEIPTS Summary Receipts proposals Changes in budget receipts Receipts by source PART 5. MEETING NATIONAL NEEDS: THE FEDERAL PROGRAM BY FUNCTION Introduction National defense International affairs General science, space, and technology Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment, and social services Health Income security Veterans benefits and services Administration of justice General government General purpose fiscal assistance Interest Allowances Undistributed offsetting receipts PART 6. PERSPECTIVES ON THE BUDGET III MX 1 2 6 13 15 16 16 17 21 29 30 37 48 59 60 61 70 72 75 76 88 104 120 129 154 169 178 194 206 217 242 258 278 287 296 302 308 311 313 315 CONTENTS Page Relationship of budget authority to outlays Alternate budget proposals Fiscal activities outside the Federal budget Budget funds and the Federal debt Reconciliation of relatively uncontrollable outlays and of receipts PART 7. THE BUDGET SYSTEM AND CONCEPTS The budget process Coverage of the budget totals Budget authority and related transactions Collections Other transactions Basis for budget figures PART 8. THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT Explanatory note Legislative branch The Judiciary Executive Office of the President Funds appropriated to the President Department of Agriculture Department of Commerce Department of Defense—Military Department of Defense—Civil Department of Education Department of Energy...., Department of Health and Human Services Department of Housing and Urban Development...... Department of the Interior Department of Justice Department of Labor Department of State Department of Transportation Department of the Treasury Environmental Protection Agency National Aeronautics and Space Administration Veterans Administration Other independent agencies Allowances Budget totals Off-budget Federal entities Attribution of Federal Financing Bank outlays PART 9. SUMMARY TABLES Explanatory note relating to the summary tables Table 1. Budget summary Table 2. Budget receipts, outlays, and budget authority Table 3. Budget authority and outlays by agency Table 4. Budget authority and outlays available through current action by Congress Table 5. Relation of budget authority to outlays Table 6. Obligations incurred, net Table 7. Balances of budget authority Table 8. Summary of full-time permanent civilian employment in the executive branch Table 9. Budget financing and outstanding debt Table 10. Budget receipts by source 326 33^ 345 353 3^ 3^ 3152 367 368 371 372 373 382 385 388 397 409 417 426 431 435 440 454 459 470 473 478 481 489 496 498 500 503 541 542 545 546 549 550 551 552 553 554 555 556 557 558 559 560 CONTENTS V Page Table 11. Offsetting receipts by type Table 12. Budget authority by function and agency Table 13. Outlays by function and agency Table 14. Legislative proposals for major new and expanded programs in the 1981 budget, projection of costs Table 15. New direct loan obligations by agency Table 16. New loan guarantee commitments by agency Table 17. Controllability of budget outlays, 1971-81 Table 18. Budget receipts by source, 1971-81 Table 19. Budget outlays by function, 1971-81 Table 20. Federal transactions in the national income accounts, 1970-81 Table 21. Federal finances and the gross national product, 1958-83 Table 22. Composition of budget outlays in current and constant (fiscal year 1972) prices: 1958-83 Table 23. Budget receipts and outlays, 1789-1983 INDEX 563 566 577 590 596 597 598 600 602 611 612 613 614 615 PART 1 THE BUDGET MESSAGE OF THE PRESIDENT THE BUDGET DOLLAR Fiscal Year 1981 Estimate BUDGET MESSAGE OF THE PRESIDENT To the Congress of the United States: This budget for 1981 is prudent and responsible. It continues the strategy of restraint that I proposed, and the Congress accepted, for the 1980 budget. At the same time it proposes selected, essential increases in areas of high priority and great national concern. In this way it seeks a balance between our needs for budgetary restraint and our needs for specific expenditures. I expect the Congress to support it. Total outlays for 1981 proposed by this budget are $615.8 billion, an increase of 9%. After allowing for inflation, this budget is virtually level with 1980 spending. Total receipts for 1981 are estimated to be $600 billion. In view of current economic conditions, the only major revenue proposal included in the budget is my windfall profit tax now before the Congress. THE BUDGET TOTALS (In billions of dollars) 1979 actual Budget receipts Budget outlays Surplus or deficit ( - ) Budget authority 1980 estimate 1981 estimate 1982 estimate 1983 estimate 466 494 524 564 600 616 691 686 799 774 -28 — 40 -16 + 5 + 25 557 654 696 775 868 Thus, I am proposing a deficit of $15.8 billion, the lowest deficit in 7 years. This reduces the deficit by 60% in comparison to 1980. More significantly, it is $50 billion less than when I first ran for the Presidency. As a percentage of the budget, and of the gross national product, the 1981 deficit is the second lowest of the last decade. Economic projections deeply affect this budget. It appears today that the long economic recovery occurring throughout my first term may falter this year. I have therefore assumed that there will be some decline in GNP during the course of 1980, followed by renewed but moderate growth in 1981. As a result, budget receipts will be reduced and certain expenditures will increase automatically. This is why the 1981 budget is in deficit. If, contrary to our assumptions, the economy were to perform strongly enough to keep the unemployment rate at its current level, the 1981 budget would be in surplus. We must monitor the economic outlook carefully. If the economy begins to deteriorate significantly, I will consider tax reductions and temporary spending programs for job creation targeted toward M3 M4 THE BUDGET FOR FISCAL YEAR 1981 particular sectors of economic stress. But I believe current economic conditions argue for restraint. I believe that this judgment and this budget recognize that equitable budget restraint is essential in our efforts to control inflation; that the unemployed should not bear the costs of our anti-inflation efforts; and most importantly, that we continue to pursue the goals of full employment, price stability, and balanced growth. The fiscal and program policies in this budget are essential, I believe, if we are to move rapidly toward these goals in the 1980's. Indeed, the restraint proposed in this budget is essential to achieve these goals. The unacceptably high inflation now prevailing is clearly due to many, deeply imbedded, long-term forces. Countering this inflation involves sustained action across a wide spectrum. • We must reduce our dependence upon foreign oil. • We must enhance our economy's productivity. • We must continue our efforts to foster competition and innovation through further deregulation. • We must sustain compliance with the administration's wage and price guidelines. But none of these efforts can succeed unless Federal spending is controlled. By continuing a clear and consistent policy of restraint, the 1981 budget insures that the Federal budget will not be an inflationary force in the economy. Although I have kept spending in this budget from rising in real terms, I have found it necessary to increase funds in a few critical areas. The most important of these are defense, energy, basic research, and the training and employment of our Nation's young people. Defense.—The long decline in real spending for defense that began in 1969 has been reversed. The uncertain and sometimes hostile world we live in requires that we continue to rebuild our defense forces. The United States will continue to seek peaceful means to settle international disputes. But I cannot ignore the major increases in Soviet military spending that have taken place inexorably over the past 20 years. I cannot ignore our commitment to our NATO allies for mutual real increases in our investment in national defense. I cannot ignore the implications of terrorism in Iran, or Soviet aggression in Afghanistan. Therefore, my budget proposes a defense program in 1981 of $158.2 billion in budget authority, an increase of over 5% in real terms. Outlays for defense will be $142.7 billion, a real increase of over 3%. THE BUDGET MESSAGE OF THE PRESIDENT M5 Moreover, I am committed as a matter of fundamental policy to continued real increases in defense; and I plan increases in my defense budgets through 1985. Over the period 1981-85, I am proposing that the defense program level of the United States increase by $90 billion. Energy.—This budget reflects the important progress made by my administration toward a broad and practical program dealing with the energy problems the Nation will face in the next decade. I am confident, and the 1981 budget assumes, that early in the 1980 session the Congress will pass the crucial measures I proposed last year: the windfall profit tax, the Energy Security Corporation, the conservation measures, and the Energy Mobilization Board. With this budget we will have put into place an energy program composed of the following elements: (1) Realistic pricing and fair taxes.—My decontrol decision of last April is now in effect. It is painful, and no one can pretend otherwise. But we cannot have an energy program that maintains illusions. Energy is not cheap, and we must accept that fact. My windfall profit tax, to be passed early this year, retains a portion of the profits from energy price increases for the public. This will insure that increased energy prices will lead to new public investment in energy production. It will insure also that the burdens of higher energy costs are fairly shared. (2) Conservation.—The 1981 budget allocates resources for tax incentives, low-interest subsidized loans, and other measures to stimulate more conservation. Conservation is the quickest and cheapest step we can take to confront our energy problem. (3) Production,—'This budget anticipates the creation of the Energy Security Corporation to facilitate the development of synthetic fuels and a major new gasohol program. It also supports continued new investments in those energy initiatives begun in the last two budgets. We are significantly increasing our expenditures on fossil fuels, on solar energy, and on nuclear fusion. Nuclear fission research, on the other hand, declines, while greater emphasis is placed on solving the current problems of nuclear power. (4) Protection.—As we adjust to the new energy realities, we must continue to protect those who are most vulnerable. The 1981 budget continues to provide funds for the poor to weatherize their homes; funds to enable the most disadvantaged Americans to cope with the rising cost of energy; and funds for energy crisis assistance. My energy program is, of necessity, a long-term one. But if it is sustained through the new decade, we will reduce consumption, M4 THE BUDGET FOR FISCAL YEAR 1981 increase production from domestic sources, and promote alternate forms of energy. We will significantly reduce our dangerous reliance upon foreign oil. We will remove a major source of inflation. Our economy and our Nation will emerge from the 1980's stronger than they are now, Basic research.—In the long run, economic growth depends critically on technological development. For many years, this country has led the world in producing new technology. We are in danger of losing this leadership. The 1981 budget continues my long-standing commitment to reverse the trends of the past two decades and provide for major and sustained increases—above the rate of inflation—for research and development programs. Obligations for research and development will increase by 13%; for basic research by 12%. Since 1978, obligations for basic research will have increased by 40%. I believe that these are among the most important expenditures we can make. The payoff, particularly for basic research, is long-term, but immense. We benefit today— in new industries, in millions of jobs, in lives saved, and in lives protected—from the investments in science made decades ago. We must continue such investments today to reap similar returns tomorrow. Human resources.—My budget, restrained as it is, provides needed support to those Americans who are most in need. Most of the increase in the 1981 budget over 1980 is due to the automatic cost-ofliving increases in entitlement programs that provide income to the poor and the elderly. I have continued and improved these programs. In addition, I have proposed discretionary increases in a wide range of programs affecting those in our society who are the most disadvantaged. The budget includes $687 million for proposals to expand health services to the poor and the underserved, including $403 million to provide medicaid eligibility for 2 million additional low-income children and approximately 100,000 pregnant women. The budget also includes a 24% increase in subsidized housing programs and a 24% increase in elementary and secondary education programs for the disadvantaged. Overall, I am proposing an increase of $7 billion in aid to the poor to protect them against the effects of inflation. At the same time, I am proposing a major initiative that will enable our Nation's disadvantaged youth to receive a strong basic education, to find and keep a job. This is a critically important time for this initiative. In the 1980's, the number of youths entering the labor market will fall. If the young people of the 1980's are prepared, they will be able to find good jobs and build productive THE BUDGET MESSAGE OF THE PRESIDENT M7 lives. My initiative will make this preparation possible. It will couple a strong emphasis on basic education with significant employment opportunity. For those young people who participate, the programs will be tough and challenging. But they will be extremely worthwhile. Those who complete them will have a major advantage where it counts—in the permanent job market. I consider this investment in human resources for the 198CTs to be as important as the investments I am proposing for basic research. It is an investment in our most precious resource—the energies and talents of America's young people. Agriculture.—Because of the aggression by the Soviet Union against Afghanistan, I concluded that we could not now permit that country to benefit from our productive agriculture. On January 4, I announced the suspension of shipments of grain, soybeans, and their byproducts to the Soviet Union. This budget reflects the steps necessary to avoid the devastating effects such action could have had on our farmers and grain shippers. Specifically, the Secretary of Agriculture will: • purchase contracts entered into with the Soviet Union at prices at or above those prevailing on January 4; • if necessary, take title to the grain intended for export to the Soviet Union and isolate it from the market; • purchase up to 4 million metric tons of wheat for an international food aid reserve; • increase the loan level for feed grains and wheat by 10 and 15 cents per bushel, respectively; and • modify the farmer-owned grain reserve to encourage farmers to place additional grain in the reserve. On January 19, I announced, as additional steps to avoid the impact of suspension of shipments, that the Government would: • increase the 1980 and 1981 Public Law 480 programs in order to increase grain shipments abroad; and • purchase corn directly at local levels to stabilize cash markets and alleviate transportation backups. I stand ready to take further steps if these actions prove insufficient. Other commitments.—In other important areas, the 1981 budget reflects the reorganization accomplishments of the administration; continues the significant progress already experienced in urban and community development; expresses my commitments to welfare reform and a national health plan, programs that will begin in future budget years; and reaffirms my dedication to improved Federal budgeting and management. M4 THE BUDGET FOR FISCAL YEAR 1981 The budget anticipates that my welfare reform proposals will take full effect in 1982, and my national health plan proposal in 1983. Taken together, these programs provide income support and assured health care to all Americans in need. My national health plan—which will be phased into operation prudently, consistent with the state of our economy—minimizes direct governmental control over health care, restrains the growth of Government, and provides maximum individual choice. I am continuing to seek enactment of my hospital cost containment proposal, which I believe is an essential part of any national health plan. When fully enacted, these two proposals—welfare reform and the national health plan—will significantly and permanently improve the lives and prospects of all Americans. The 1981 budget includes a $15.5 billion allocation for the new Department of Education, which the Congress has approved. The establishment of this Department will require a great deal of effort in the short run, but it will give our system of education the consistent attention and high priority it deserves. This budget also continues the improvement in the budget process I promised 4 years ago. In the 1979 budget we introduced zerobase budgeting, a system we have now used in three budgets to assure the allocation of scarce public resources to the most critical areas. Last year, in the 1980 budget, we moved to multiyear budgeting, My budget again this year shows not only decisions for 1981, but the effect of those decisions—in detail—for 1982 and 1983. To the extent feasible, the multiyear budget projects also the future costs of programs such as the national health plan, welfare reform, defense, energy, and research and development. This year I have installed a central system to control the use of Federal credit. In the past, too much has escaped the normal discipline of the budget. This system, which is now in place, recommends specific credit limitations for most credit programs. THE CREDIT BUDGET TOTALS {in fallens of <WUn) estrufe 1S!0 1331 e*/rj!t 51.4 74.7 59.7 75.2 60.7 81.4 126.1 134,9 142.1 1379 New direct loan obligations New loan guarantee commitments Total The new system of credit control will permit both the administration and the Congress to improve their understanding of the credit programs, to measure their important effects, and to determine appropriate levels of credit activity. THE BUDGET MESSAGE OF THE PRESIDENT M9 This budget reflects continued efforts to improve financial management in Government and to stop illegal or improper use of taxpayers' money. We are achieving major savings from better cash management and stronger internal auditing in Federal agencies. Conclusions.—Proposing a responsible Federal budget is a fundamental task of public leadership. The budget must reconcile a broad range of legitimate claims for resources with the needs of the economy and the burdens on the taxpayer. Simultaneously, it must: • respect past commitments in its allocations to social security, to veterans, and to the elderly; • meet the needs of the present for defense, unemployment benefits, and health services; and • invest in the future through research and development, energy programs, and education. The budget must do all of these things specifically and in detail. A budget rests on specific proposals related to specific costs, not on rhetoric. A budget also rests on policy. And this budget contains important policy decisions—major departures, new initiatives, larger and longer-term commitments. Each stands on its own merit. Yet taken together all of the proposals in this budget can also be characterized in a more general way. They reflect the maturing of the administration's basic, consistent underlying policy themes: restraint in budgeting the taxpayers' dollars; the strengthening of our defense; providing energy for the future; improving opportunities for the Nation's youth; and making Government work better. Ours is a great and complex nation. The existing arrangements in our society are the result of complex, not always consistent decisions of the past, emerging from a democratic people. Change is sometimes slow because it rests on consent. But intelligent, consistent leadership, persistently applied, can bring about change in policies and further the well-being of our society and of its people. I believe that this budget, and those I have submitted in the past, support the fundamental policies that will prepare America for the new decade. JIMMY CARTER. JANUARY 2 8 , 1 9 8 0 . PART 2 BUDGET SUMMARY 1 310-000 0 - 80 - 2 BUDGET SUMMARY This part of the budget summarizes the President's major budget proposals and discusses significant changes in the way the Government conducts its business. OVERVIEW OF THE BUDGET Inflation is the most serious economic problem facing the Nation today. Accordingly, this budget proposes continued restraint on the growth of Federal spending, which was also the hallmark of the administration's budget last year. Overall, this budget, adjusted for inflation, limits spending in 1981 to about the same level as in 1980. Restraint has been applied carefully. For the third consecutive year, zero-base budgeting has been used to establish priorities that put taxpayers' dollars to best use. Desirable new programs have been deferred. Increases in existing programs have been limited. Past efforts to achieve program efficiencies and improve management are beginning to pay off; further efforts in this direction are undertaken in this budget. Reductions in lower priority programs have been proposed; specific outlay reductions of S9.7 billion from current service levels are proposed. Total outlays increase by $52 billion between 1980 and 1981. Virtually all of this increase derives from three sources: the uncontrollable programs in the budget, such as interest on the debt and benefit payments for individuals, and increased spending for energy and defense. Benefit payments under retirement, disability, health care, and similar programs rise because of automatic cost-of-living adjustments and because of the normal annual increases in the number of eligible beneficiaries. Interest on the public debt increases because of the effect of high interest rates and because of increases in debt outstanding. Expenditures for essential defense modernization—primarily to strengthen NATO-related and strategic capabilities and to increase our flexibility to meet crises in other areas—are proposed to increase in real terms. Necessary increases are provided for programs that will increase energy production and conservation and reduce our reliance on foreign oil. 2 BUDGET SUMMARY 19 The remainder of the budget shows selective increases for critical areas, such as for the President's youth initiative and for low income housing, but, overall, is reduced in real terms. Budget Outlays—Constant 1981 Dollars This budget moves back toward balance in 1981, following a rise in the deficit in 1980. This pattern of budget deficits reflects the effects of the economic activity expected during the next two years, with an expected economic downturn during the first half of calendar year 1980 and a recovery thereafter. If, contrary to our assumptions, the economy were to perform strongly enough to keep the unemployment rate at its current level, the budget deficit would be much smaller in 1980, and by 1981 the budget would be in surplus. The major policy changes in the budget can be highlighted by comparing the administration's recommendations with current services estimates. Current services estimates are projections of the costs of existing programs under existing law. They include outlay changes that result from increased numbers of beneficiaries entitled to receive payments and higher benefit levels due to increases in the cost of living, and added outlays necessary to maintain program levels in the face of rising costs. They do not include increases or decreases in the program level due to policy changes. M4 THE BUDGET FOR FISCAL YEAR 1981 EFFECTS OF BUDGET PROPOSALS (In billiOrtS of doftarj) htmtn 1979 actual Receipts: Current services Proposed reductions ( - ) Proposed increases Budget receipts Outlays: Current services Proposed reductions ( - ) Proposed increases Budget outlays Surplus or deficit ( - ) : Current services basis Budget surplus or deficit ( - ) mo 1331 465.9 517.4 -.1 6.6 579.0 -.3 21.3 465.9 523.8 600.0 493.7 560.6 -.2 3.1 612.0 -9.7 13 5 493,7 563.6 615.8 -27.7 -43.2 -33.1 -27.7 -39.8 -15.8 Current services estimates provide a basis for identifying the effects of policy changes recommended in the budget. Policy changes include both proposed legislation and appropriations requested for discretionary increases or decreases in program levels. Special Analysis A, which accompanies this budget, contains a detailed comparison between the 1981 budget estimates and the current services estimates. The budget recommendations would result in 1981 outlays of $615.8 billion—$3.7 billion above the current services level. Areas where major increases over current services occur are: defense spending excluding pay, which is $5.4 billion over current services levels in 1981; energy-related programs, which are $2.4 billion higher; and countercyclical fiscal assistance, which would add $1.0 billion to current services spending levels. The principal reductions from current services include: —$2.7 billion for the administration's pay reform proposals, which make Federal compensation more comparable with other sectors; —$0.8 billion for hospital cost containment; —$0.8 billion for higher education, primarily for student loan reforms; —$0.8 billion for agriculture export credit sales which are converted to a guaranty program; and —$0.5 billion for reform of the school lunch and child nutrition programs, primarily to focus them on the needy. The following table identifies major program increases and reductions, relative to current services levels, in the 1981 program. Major legislative reduction proposals are discussed in a separate section, below. 5 BUDGET SUMMARY BUDGET AUTHORITY AND OUTLAY INCREASES AND DECREASES RELATIVE TO CURRENT SERVICES (In btHions of dollars) Outlays Budget authority Program Decreases: Defense—Military pay reform Civilian agencies pay reform Medicare and medicaid—hospital cost containment Other medicare and medicaid reforms Net interest Higher education programs School lunch and other child nutrition programs Federal impact aid to education Agricultural export credit sales... Public assistance program reform Rail subsidies Highway construction Social security and railroad retirement Other Subtotal, decreases Increases: Defense—Military, program increases Allowance for contingencies and welfare reform Countercyclical fiscal assistance Transportation energy conservation program Heating bill assistance for low income families Strategic petroleum reserve Synthetic fuels promotion Other energy programs Social services Economic development initiative Atomic energy defense activities Environmental programs Housing assistance International programs Science and space programs Crop insurance and food security reserve Child health assurance program (medicaid) Youth initiative: Education Training and employment Other 1980 1931 1980 1981 * .5 -1.6 .1 -1.7 -1.0 -.8 -.6 -1.2 -.8 —.5 —.3 -.8 -.2 -.3 -.2 -.2 -1.1 -.3 -7.2 -.2 -9.7 .9 .2 .4 1.3 9.1 2.0 1.0 1.5 .9 .1 .2 .1 5.4 1.5 1.0 .6 .8 -1.7 -1.1 -.2 -.1 * -.1 -1.2 -.5 -.5 -.4 -.2 -.2 » -.2 -.1 * * * * 2.3 17.8 1.0 .5 .6 * 1.0 .4 .5 .1 * * * .1 .3 .3 .1 .3 .2 .4 .9 , .3 .9 Subtotal, increases 23.7 25.7 Total, changes from current services, net 23.4 18.4 1.0 .5 .3 .2 .1 .1 * .1 .5 .4 * .3 .1 .7 3.1 13.5 3.0 3.7 *$50 mdlton or less Receipts under the tax proposals in this budget are expected to be $600 billion in 1981, $21 billion higher than the current services level. The major increases over current services result from the administration's windfall profit tax proposal and cash management proposals to require tax payments closer to the time that liabilities are incurred. M4 THE BUDGET FOR FISCAL YEAR 1981 Tax receipts tend to grow more rapidly than the economy as a whole, raising tax burdens and restraining growth. Because it is the long-term policy of this administration to limit tax burdens, periodic tax reductions will carefully be considered between now and 1985. Such tax reductions will permit taxpayers to share the benefits of spending restraint. The appropriate timing, magnitude, and composition of tax cuts in the 1982-85 period, however, depend upon future economic conditions and therefore must be determined at a later time. The 1981 budget proposals are directed toward reducing inflation. Restrained monetary and fiscal policy together are designed to help create an environment in which inflationary pressures will ease. The budget supports this effort by reducing the budget deficit to $16 billion, the lowest level since 1974. In relation to the size of the economy, this deficit is 0.6% of GNP, well below the 2.0% average of the 1970*8. Budget Deficits as a Percent of G N P Percent P«rcut MAJOR BUDGET PROPOSALS Tax proposals.—The budget reflects the administration's windfall profit tax proposal, which is designed to capture a part of the windfall profits of domestic oil producers that result from decontrol of domestic oil prices and rapid increases in world oil prices. This BUDGET SUMMARY 7 tax is an essential component of the administration's energy initiatives and is estimated to increase excise tax receipts by $20.9 billion in 1981. These receipts will provide resources that will make it possible to finance specific energy-related programs. In part because the proposed tax is an excise tax, and thus deductible for income tax purposes, it reduces income tax receipts and produces a net increase in receipts of $13.9 billion in 1981. The receipts estimates also reflect administrative actions and legislative proposals to require that tax payments be made closer to the time that liabilities occur. Under current law, some taxpayers, particularly large corporations, can defer tax payments well beyond the time when liabilities accrue or when they withhold taxes from employees' paychecks. Such deferrals amount to interest-free loans from the Federal Government. These cash management initiatives will increase receipts by $4.5 billion in 1981 and by $5.6 billion in 1982. (See Part 4 for a more detailed description of these and other tax proposals). Defense and international.—Since taking office, this administration has deliberately and steadily achieved increases in defense resources. The U.S. and its allies recognize that our military capabilities must be strengthened to play a more constructive and stabilizing role in the international arena. Therefore, the budget proposes significant increases in the resources necessary to assure our national security. Defense outlays will be $142.7 billion in 1981, an increase of $15.3 billion from 1980. Both strategic and conventional forces will be strengthened. In the strategic area, substantial funding increases are provided for development of the MX, a new land-based missile system. Funding of the new Trident missile, a replacement for the Polaris and Poseidon submarine-launched missiles, continues. Air launched cruise missiles are being developed and procured. In conjunction with our NATO allies, continued emphasis will be given to modernizing our NATO-oriented forces and improving our ability to reinforce units in Western Europe. Our ability to deploy forces rapidly elsewhere in the world will also be improved. Overall, defense program increases in excess of 5% in real terms will result in a corresponding increase in defense spending of over 3% in 1981. Additional increases in real terms in both program levels and spending levels are projected for the next several years. The budget proposals for international affairs are designed to help meet the near-term challenges to stability in many areas of the world, as well as supporting our longer term interests worldwide. In 1980, supplemental appropriations are proposed for foreign economic and military assistance in response to the Soviet invasion of Afghanistan. Other adjustments in spending for international M4 THE BUDGET FOR FISCAL YEAR 1981 programs may be necessary as further requirements become clearer. Energy.—Outlays for energy programs in 1981 are estimated to be $8.1 billion, $0.4 billion more than in 1980 and $1.3 billion more than in 1979. The Nation's energy problems became even more apparent last year with rapid escalation of OPEC prices and the accompanying drain of dollars to pay for OPEC oil. The 1981 budget reflects the administration's initiatives to reduce oil imports and to expand programs in domestic energy supply and conservation. The administration's energy strategy continues to concentrate upon reducing the Nation's dependence on foreign oil in order to increase our energy security. A basic element of that strategy is the decontrol of oil and natural gas prices. In addition, the proposed windfall profit tax will ensure that the costs of more expensive energy are equitably shared, and will finance programs to help offset rising energy costs for low income families, reduce petroleum imports, promote domestic energy supply, and encourage energy conservation. Many of these programs were proposed to the Congress last year, some were enacted, and several, including the windfall profit tax, the Energy Security Corporation, and the Energy Mobilization Board, were near final congressional action at the end of the last session of Congress. The goal of these programs is to reduce oil imports from the current level of 8.1 million barrels per day to 4.5 million barrels per day by 1990. To help reduce oil imports, the administration's energy program seeks to develop a broad range of alternative energy sources, including additional incentives for domestic oil and natural gas production, opening up the National Petroleum Reserve in Alaska to private exploration and development, the production of synthetic fuels, and advanced research on renewable energy forms such as solar power. Energy conservation will be encouraged both by the higher prices that result from decontrol and by new programs to foster more efficient energy use by individuals, businesses, and government agencies. All existing sources of energy, including nuclear power, must play a part in restoring our national energy security. Nuclear power programs in the 1981 budget continue a shift away from support of advanced reactor types such as the breeder reactor, with greater resources devoted to increased efficiency and safety in existing nuclear plants. Staffing and funding for the Nuclear Regulatory Commission have been significantly increased to correct deficiencies uncovered following the accident at Three Mile Island. The administration has proposed programs that increase support for mass transit, encourage car pooling, and improve the efficiency BUDGET SUMMARY 9 of automobile engines. The budget includes $1.5 billion in budget authority and $0.6 billion in outlays for these programs in 1981, with significant increases in outlays expected in 1982 and beyond. The administration also proposed a program to assist those lowincome families least able to pay higher energy prices. For 1980, the Congress enacted a program of special energy allowances and energy crisis assistance for such families, providing the $1.6 billion requested by the administration. The administration proposes that outlays be expanded to a total of $2.4 billion in 1981, and that this level be maintained through 1990. Increases in Budget Outlays from 1980 Education, training, and employment.—The budget requests substantial increases in spending for education, training, and employment programs, especially those aiding our Nation's disadvantaged youth. Continued high levels of youth unemployment, especially among minorities, creates a serious and long-term national problem. The most compelling reason for increasing efforts to improve employment opportunities for youth is the evidence that poor initial job experience, especially for those just leaving school, can adversely affect employment and earnings for a lifetime. M4 THE BUDGET FOR FISCAL YEAR 1981 In 1977 this administration proposed and the Congress enacted new training and employment programs for youth- Since 1977, outlays for special programs for youth training and employment have risen threefold, from $777 million that year to an expected $2.3 billion in 1980. During this same period the administration proposed and the Congress enacted a program directed at improving the capacity of educational systems to teach basic skills. The program has grown to a proposed $40 million in 1981. The problems of unemployment are greatest among minority and disadvantaged youth, who are disproportionately concentrated in central cities and rural poverty areas. Some of these difficulties are due to discrimination, some to lack of contacts in the job market, and some to poor preparation in basic literacy and arithmetic skills. In this budget, the President is recommending a major new initiative and $2.0 billion in budget authority ($1.2 billion above current services) to help solve the problems of youth unemployment. The initiative is proposed to grow to $2.8 billion in 1982. The budget proposals would provide grants to help secondary schools in areas with high concentrations of poor and educationally disadvantaged youth. Needy students in these schools would be assisted through programs that provide the basic academic and employment skills required to get and hold jobs that can lead to advancement. For this part of the program, $900 million in budget authority is proposed for 1981. The budget proposes to consolidate and enhance three of the experimental programs started in 1977. Needy youth in school would be provided developmental work experience, in the private sector as much as possible, that would reinforce the skills being learned in the education program. Those out of school would be provided a mix of training and work experience designed to give each participant an opportunity to acquire the basic skills required by potential employers. For this portion of the program, $1,125 million of budget authority would be provided for 1981, $300 million above the current services level for existing programs. Administration of the summer youth employment program would be integrated with the new program, eliminating administrative problems now hampering local programs. In 1981, the summer program will finance 1 million part-time jobs, the same level financed in 1979 and proposed for 1980. Continued expansion of the Job Corps training program to 44,000 training opportunities for youth, double the 1977 level, is also proposed. Other training and employment programs will continue to be funded at high levels during 1981. Outlays for public service jobs are estimated to be $4.4 billion in 1981, providing for 450,000 jobs. BUDGET SUMMARY 11 The budget also includes the administration's welfare reform initiative, which will integrate the delivery of cash assistance with an overall employment and training strategy. This proposal would insure that individuals receiving public assistance have strong incentives to seek permanent employment, and would provide work and training for principal earners in eligible families. The budget estimates for start up costs during 1981 and for operational costs for 1982-85 are included in the allowance for contingencies. The budget requests $5.6 billion for assistance to higher education under the higher education reauthorization proposal that the administration has submitted to the Congress. Included in that proposal is the creation of a major new student assistance direct loan program under which the Federal Government would provide postsecondary 1.25 million loans averaging $720 in 1981. A 10% increase in G.I. bill benefits to assist veterans education and training under the post-Korean readjustment program is also proposed. Health.—Federal programs for health care have significantly increased access to medical care for the poor and the aged. Despite this progress, serious problems of financing, coordinating, and providing access to health care persist. The 1981 budget proposes several initiatives to address these problems. Hospital cost containment and other cost-saving proposals in this budget reflect the administration's continued commitment to restrain inflation in health care costs. These proposals would save the Federal Government approximately $1.7 billion in 1981, including $0.8 billion from hospital cost containment. Additional savings would be realized by State and local governments and by individuals. The administration has proposed a national health plan which will provide comprehensive coverage for an additional 15 million poor, limit out-of-pocket expenditures for the elderly, and provide protection against catastrophic health expenses for all Americans. The plan would provide comprehensive coverage of prenatal and infant care services. Program expansions included in this plan are timed to occur after proposals to control inflation in health care costs are in place. The national health plan is estimated to cost $24.1 billion in 1983, its first year of operation. The budget includes major health planning and grant consolidation proposals. These administrative reforms aim at integrating the current system of 11 State health plan requirements and 30 separate grant programs. The grant reforms would initiate comprehensive performance agreements with State and local governments for delivery of primary health services to the poor and underserved, M4 THE BUDGET FOR FISCAL YEAR 1981 and would improve the coordination of planning and decisionmaking. Basic research.—Basic research is essential to maintaining the Nation's long-term prospects for industrial growth, agricultural productivity, a safe environment, medical advances, energy sufficiency, and national security. This budget continues the administration's commitment to increasing support for basic scientific inquiry and for advancing the frontiers of technological developments. It calls for total spending of $5.1 billion in 1981 for basic research, an increase of nearly 3% in real terms over 1980. This sustained commitment will lay the foundation for American scientific and technical preeminence in the future. Agriculture.—The role of the Federal Government in protecting American farmers against the vagaries of weather and excessive fluctuations in prices is long established and widely accepted. Recent events have highlighted the importance of this role. Following the Soviet aggression against Afghanistan, the administration has significantly limited Soviet grain purchases from the United States while at the same time taking actions to assure that any adverse effects of the export limitation do not fall disproportionately on farmers. The budget estimates include $2.0 billion in 1980 and $0.8 billion in 1981 for an export control mitigation program. These outlays will cover the costs of stabilizing the market for grain, soybeans, and their products at prices equal to or above those existing at the time of the suspension of shipments to the Soviet Union. These actions will avoid sharp drops in agricultural commodity prices that would adversely affect the American farmer. General purpose fiscal assistance.—General revenue sharing, the largest general-purpose fiscal assistance program, is currently scheduled to expire at the end of 1980. This program provides funds to almost every general-purpose unit of government in the United States, many of which have no other direct contact with the Federal Government. The administration is proposing a 5-year extension of a modified version of general revenue sharing at the 1980 level of $6.9 billion per year. This proposal will introduce a new and more cooperative approach to intergovernmental relations in the 1980's, and forge a closer partnership among Federal, State, and local governments. Revenue-sharing payments to State governments will be continued contingent upon those governments cooperation in a participatory process designed to strengthen the fiscal condition of both States and localities. At the same time, the proposed formula for allocating funds to local governments is being revised to increase the BUDGET SUMMARY 13 share of payments to communities less able to finance essential services from their own resources. In addition, this budget provides funds in 1980 for a 1-year targeted fiscal assistance program that would provide general purpose fiscal assistance to localities with high unemployment and low economic growth. It also provides funds, beginning in 1980, for a countercyclical fiscal assistance program to aid State and local governments during periods of high unemployment. Immediate action on these proposals is needed to assist State and local governments in meeting their commitments during 1980 and 1981. Combined outlays under these two proposals would be $250 million in 1980 and $1.0 billion in 1981. PROPOSED LEGISLATION THAT WOULD REDUCE FEDERAL SPENDING The budget restraint required to counter the current severe inflation has made it essential to propose a number of reductions in Federal programs. Zero-base budgeting is well suited to this task. With the zero-base budgeting process, it has been possible to compare programs and to judge where the largest dollar savings could be achieved with the least sacrifice in program performance and service to the public. This budget includes a number of legislative proposals that would reduce Federal spending. Savings would be achieved through several health-related proposals, modification of entitlement programs to relate benefits more closely to need or to earned rights, increased administrative efficiencies, and reduction of waste, fraud, and abuse. In addition, this budget contains proposals to reform Federal compensation practices and procedures, place the railroad retirement system on a solid financial footing, and dispose of excess materials in the national stockpile of strategic materials. Together, the legislative proposals will reduce Federal spending by $5.6 billion in 1981 and by significantly larger amounts in subsequent years. Savings under legislative proposals do not represent all of the savings proposed in this budget. Some are planned under existing administrative authorities or take the form of lower appropriation requests. Discussion of these kinds of reductions is included in Special Analysis A, which compares current services estimates with the President's budget. Hospital cost containment is the most urgent anti-inflation measure proposed in the budget. Enactment of this proposal would serve four objectives. It would reduce Federal outlays significantly, hold down the costs to State and local governments of providing health care services, slow the growing direct burden imposed on consumers, and contribute importantly to reducing inflation. The proposal consists of a national voluntary limit on hospital expenditure in M4 THE BUDGET FOR FISCAL YEAR 1981 OUTLAY SAVINGS FROM LEGISLATIVE PROPOSALS (In nations cf doiUn) U3C Health programs: Hospital cost containment Revision to make medicare benefits for the working aged supplementary to private insurance Elimination of bonus to hospitals for provision of routine nursing services to medicare beneficiaries limitation on payments to hospitals to the nursing home rate for long-term case services Implementation of joint audit for medicare and medicaid.. Establishment of financial penalties to deter abuse of medicare and medicaid programs Competitive bid purchasing for equipment and services.... Other health care cost control proposals -1620 -2,390 — 170 -260 -295 -191 -245 -305 — 20 -32 -30 -32 -35 -32 -23 -12 -69 -23 -18 -90 -23 -24 -97 -1,297 -2.318 -3,201 - 1 7 1 2 -2.015 - 1,016 -1,134 —2.177 -1,302 -2728 -3,199 -3,479 -69 -217 -430 -186 -206 -214 -432 -478 -513 -249 -181 -164 -70 -102 -136 -1,006 -1.184 -1,457 -55 -32 -48 -30 -41 -28 -45 -321 -365 -362 -45 -409 -442 -431 -203 -203 Federal compensation reform: Department of Defense-Military Civilian agencies and programs Total, Federal compensation reform Total, income security programs Veterans benefits and services: Elimination of Gl bill benefits for correspondence courses and general flight training Elimination of certain dental benefits Reimbursement by health insurers for certain medical care given insured veterans Total, veterans benefits and services Increase in sales from the Federal strategic and critical materials stxkpile to adjust the inventory to current requirements Total mi -780 Total, health programs Income security programs: Disability insurance reforms, including revision of benefit computations, increased work incentives, improved administration, and other changes State financial liability for errors in food stamp program administration Targeting of child nutrition and special milk program subsidies to the most needy Changes to the aid to families with dependent children (AFDC) program and related programs to simplify eligibility and administration, reduce fraud and abuse-, and improve the child support enforcement program.... Reform of the railroad retirement program to restore the solvency of the railroad industry pension fund im -16 -79 -95 -178 -318 - 5,643 — 7,346 -203 -8771 BUDGET SUMMARY 15 creases, and standby mandatory controls on inpatient revenues if the voluntary limit is not met. These limitations would force hospital managers to curb excessive spending for unnecessary equipment, expansion of unnecessary facilities and wasteful operating practices. Enactment of hospital cost containment legislation would yield national savings of $11.9 billion over the 1981 to 1983 period, including $4.8 billion in Federal outlay savings. The failure of the Congress to enact such legislation in calender year 1979 will cost the Federal Government an estimated $1.3 billion. Other legislative proposals in the health care area would result in Federal savings of $0.5 billion in 1981 and $2.0 billion in the period 1981 to 1983. The administration has also proposed comprehensive legislation to reform and improve Federal compensation systems and procedures. The proposal would broaden the principle of comparability and bring Federal compensation more closely into line with the non-Federal sector. Fraud and error will be reduced in the food stamp program by creating financial incentives for States to improve administration. Legislation has been proposed requiring States with excessive error rates in administering the program to share in the cost of such errors. Legislation has also been proposed to reduce meal subsidies for students from higher income families so that Federal child nutrition aid may be better targeted to those who are most in need. Major cost-saving proposals are discussed in more detail in Part 5 of the Budget The table on page 14 summarizes the legislative cost-saving proposals included in the budget. Many of the proposals relate to health and income security programs. Since an overwhelming percentage of spending in these programs is for entitlements, reductions can be made only through the enactment of changes to authorizing legislation. In contrast, reductions in most other Federal programs may be accomplished through the appropriations process without modification of substantive legislation. BUDGET AUTHORITY All budget outlays depend on the legal authority to spend money provided by the Congress. Such "budget authority'—usually in the form of appropriations—results in outlays, some of which occur during the fiscal year for which the budget authority is granted and the rest of which occur in subsequent years. For 1981, the President is requesting new budget authority of $696.1 billion, $18.4 billion above the current services level of $677.6 billion. In 1980, outlays are estimated at 86.2% of budget authority for that year. This percentage is somewhat below recent experience for two reasons. First, budget authority in 1980 is increased by $15 billion for borrowing authority for TVA powerplant construction. M4 THE BUDGET FOR FISCAL YEAR 1981 This authority, last replenished in 1976, is needed once every few years. It results in outlays over a period of years that are largely offset by proceeds from the sale of power. Second, the administration has proposed increases in budget authority of almost $18 billion for establishing the Energy Security Corporation. In 1981, outlays are expected to be 88.5% of budget authority, which is more in line with recent historical experience. BUDCET AUTHORITY (in t x t a d fciUn) actual Available through current action by the Congress Available without current action by the Congress. Deductions for offsetting receipts Total, budget authority 1330 360.1 264.6 _ -68.0 1331 416,0 318 3 -80.2 432.9 351.8 -88.6 556.7 654.0 696.1 556.7 630.6 677,6 MEMORANDUM Budget authority, current services basis FEDERAL CIVILIAN EMPLOYMENT AND PAY The 1981 budget meets the President's objective of holding Federal civilian employment to the minimum necessary for the efficient and effective operation of the Government. Full-time permanent employment in the executive branch (excluding the Postal Service) is estimated to be 1,909,000 by the end of 1981, a small reduction from 1980, and below the level that existed when the administration took office. Employment at the end of 1981 is in keeping with the statutory employment limitation contained in the Civil Service Reform Act of 1978. As noted earlier, the administration has proposed comprehensive legislation to reform and improve Federal pay-setting systems and procedures. The legislative proposal would broaden the principle of comparability to (1) take into account both pay and benefits instead of just pay; and (2) include data from State and local governments as well as data from private industry. The Federal wage system for the blue collar work force would be modified to repeal those provisions of law that undermine the prevailing rate principle. These proposals will improve the comparability system. FEDERAL DEBT During 1981, Federal debt held by the public is expected to increase from $689 billion to $722 billion, a rise of $33 billion. The corresponding growth during 1980 is expected to be $44 billion. BUDGET SUMMARY 17 About half of the 1981 debt increase is due to the anticipated budget deficit and half is due to the activities of the off-budget Federal entities (discussed in Part 6 of this document). Other factors, such as changes in cash balances held by the Treasury, also affect the debt. Gross Federal debt, which includes debt held in Federal Government accounts (primarily trust funds), is projected to rise by $59 billion in 1980 and $47 billion in 1981. FEDERAL DEBT (In billions of dollars) 1980 estimate 1979 actual Debt outstanding, end of fiscal year: Gross Federal debt Debt held by the public 833.8 644.6 1981 estimate 892.8 688.9 939.4 722.0 CONTROL OF FEDERAL CREDIT ACTIVITIES A year ago, in the 1980 Budget, the administration announced its intention to establish a system to control Federal credit activities. This budget carries out that commitment. Federal credit programs have been controlled to some extent through the normal budget process. Budget authority and outlays for most direct loans of the Federal Government are, under the normal budget rules, included in the budget, and limitations of various kinds have been placed on some guarantee programs in the past. However, there is increasing concern about control over Federal guarantees of private loans, which do not generally result in budget oulays except in cases of default. Guarantees are large and growing, and can often substitute for on-budget direct lending or other outlays in order to escape budget controls. In fact, many federally guaranteed loans are converted to off-budget direct loans when they are financed through the Federal Financing Bank (FFB), the activities of which are excluded by law from the budget. The table below shows the totals of the credit budget, which is measured by new obligations for direct loans and new commitments for loan guarantees.1 In 1981, direct loan obligations increase by 1.7% over 1980 compared with a 16.1% increase in the previous year. Loan guarantee commitments, on the other hand, increase 8.3% in 1981 after increasing only a small amount in 1980. The total increase for direct loans and loan guarantees together is 5.3% in 1981. 1 Direct loan obligations and loan guarantee commitments by agency are presented in tables 15 and 16 of Part 9 of this document. M4 THE BUDGET FOR FISCAL YEAR 1981 THE CREDIT BUDGET TOTALS (inrnmct {ftbrs} mo 1373 New direct loan obligations: On-budget Off-budget Total, new direct loan obligations New loan guarantee commitments 1 Total iTo avoid double counting, wdudes rarmttwits direct loans nude by another Government account. 1911 KtifTJite BSflUEl actual 33.9 17.5 36.4 23.3 35.4 25.3 51.4 74.7 59 7 75 2 60.7 81.4 126.1 134.9 142.1 for guarantee ct teara previously guaranteed and for guarantee by x x Gcverttwrrr iccewit ct As shown by amounts outstanding, the total size of Federal credit is large. On-budget direct loans outstanding are expected to decline very slightly in 1981 after a moderate increase in 1980. Offbudget direct loans outstanding increase significantly in 1981, to $90.8 billion, due to large increases in the holdings of loans by the FFB. The FFB serves as a financial intermediary for the efficient financing of obligations issued, sold, or guaranteed by Federal agencies. Loan guarantees outstanding increase sharply in this period—by $24.7 billion in 1980 and $30.9 billion in 1981—and reach $253.2 billion. The average annual increase in direct loans and loan guarantees outstanding is 13.1% from the end of 1979 to the end of 1981. LOANS AND LOAN GUARANTEES OUTSTANDING END OF YEAR (In btlTioftt d defers) 1973 actual Direct loans: On-budget Off-budget Loan guarantees1 Total l 1911 1930 estimate n^rj*? 79.9 57.5 197.7 85.4 74.2 222.3 84,8 90.8 253.2 335.1 381.9 428.8 To avoid douMe counting, excludes loans previousfy guaranteed and guaranteed (cans heW as direct leansfcyGcver-rer.t j c c x r t i Net direct loan outlays are equal to the change in direct loans outstanding; net loan guarantees are equal to the change in loan guarantees outstanding. Net loan outlays and net loan guarantees also measure the net addition to credit advanced by the Federal Government. Conceptually, they are analogous to budget outlays. On-budget net loan outlays increase only slightly between 1979 and 1980, and then fall by $6.2 billion, to - $ 0 . 6 billion, in 1981. The sharp decline is the result of reduced loans for farm support, disaster assistance, and transportation; higher repayments of existing loans; and an increase in sales of loans. Off-budget net loan outlays are unchanged at $16.6 billion in 1981, after an increase of $3.0 billion in 1980. Net loan guarantees increase sharply through BUDGET SUMMARY 19 out this period, reaching $30.9 billion in 1981, $11.9 billion higher than in 1979. The growth is primarily the result of increased guarantees for economic development, the energy initiative, and housing. NET LOAN OUTLAYS AND LOAN GUARANTEES (In b i t e of dollars) 1979 actual 1980 estimate 1981 estimate Net loan outlays: On-budget Off-budget ...... Net loan guarantees 1 5.0 13.6 19.0 5.5 16.6 24.7 -0.6 16.6 30.9 Total 37.7 46.8 46.9 1 To avoid double counting, excludes loans previously guaranteed and guaranteed loans made as direct loans by Government accounts. The credit control system works in tandem with the conventional budget system. Wherever appropriate, the administration is requesting annual appropriation bill limitations on credit programs, whether they are direct loans or guarantees, and whether they are included in the budget or are off-budget. The limitations are on new obligations for direct loans and new commitments for loan guarantees. These requests were developed as part of the normal budget review process.1 The new system has three long-range goals. • First, at the program level, the system should ensure that credit programs meet the purposes for which they were intended, that they do so effectively, and that the level of resources is justified. • Second, the system should result in closer examination of the allocation of credit and real resources across broad sectors of the economy. • Third, the system should encourage more careful consideration of the impact of total Federal credit activity on the economy as a whole—on the borrowing needs of the private sector, and on economic growth, inflation, and employment. At this stage in the development of the credit control system, the administration is proposing that certain credit programs be subject only to the control provided by authorizing legislation. Appropriation bill limitations have not been proposed for these programs, which include insurance programs, such as the Federal Deposit Insurance Corporation, and entitlement programs, under which qualified recipients have a legal right to direct loans or loan guarantees. These are analogous to relatively uncontrollable outlays in the regular budget and comprise a large portion of Federal credit activity. In addition for the 1981 budget, some credit activities in the housing sector have been exempted from annual limitations due to current uncertainty in the housing markets. 1 The new system is discussed more fully in the Introduction to Part 5 of the budget M4 THE BUDGET FOR FISCAL YEAR 1981 For purposes of this new credit control system, coverage has been restricted to direct Federal activities. Therefore, for example, lending activities by the privately owned Government-sponsored enterprises have been excluded from the credit control system because of their private ownership, although their activities are considered in analyzing the impacts of Federal credit programs. The limitations set for this first year of the credit control system are summarized in the following table. FEDERAL CREDIT LIMITATIONS (In bifcra of <Jcflan) 1911 Limitations on direct loan obligations Limitations on loan guarantee commitments Total limitations 27.2 32.5 ..... M7 In 1981, total direct loan obligations covered in the credit control system are expected to reach $60.7 billion. About half of those obligations ($27.2 billion) are proposed to be subject to appropriations bill limitations, largely because the direct lending activity of the FFB is intended to be controlled at the point at which the loans are guaranteed by other agencies. Of the $27.2 billion in obligations Loan Guarantees Outstanding BUDGET SUMMARY 21 proposed to be subject to limitations, $24.7 billion is expected to be obligated. Loan guarantee commitments covered in the credit control system are expected to be $81.4 billion in 1981. Because a number of programs are subject only to authorizing legislation, the proposed limitations are $32.5 billion, or two-fifths of the total. Of the $32.5 billion in commitments proposed to be subject to limitations, $31.8 billion is expected to be committed. MAKING GOVERNMENT WORK BETTER1 Credit control is but one of many ways in which this administration is making Government work better. Efforts to ensure that Government uses all of its resources efficiently must be unending. Waste, mismanagement, fraud, and inefficiency must be eliminated through prompt and effective efforts to improve Government performance. This administration has initiated specific programs designed to make Government work better. Government-wide reforms, as well as specific actions to meet problems unique to particular programs, have been undertaken to promote efficiency and improve program management. Some of the major Government-wide initiatives to date include: Civil service reform.—One of the most far reaching of the President's management improvement efforts has been the reform of our hundred-year-old civil service system. Under this reform, Federal managers have been given greatly increased authority, flexibility, and incentives to manage the Federal workforce. Civil service reform will increase the efficiency of the Federal Government by making it easier to recruit, retain, and reward dedicated, competent and productive Federal employees. Also, as discussed earlier, the President has proposed a comprehensive reform of the systems used to determine compensation of Federal civilian workers. Regulatory reform and paperwork reduction.—The Government's regulatory functions have expanded greatly in recent years in response to concern regarding activities that potentially threaten the public welfare. Increased regulatory activity, however, has spurred growing frustration over the negative consequences of regulatory efforts, including the rising costs of compliance with Government regulations for businesses and the increased paperwork burden involved. To ensure that the Government's regulatory role is carried out in the most effective and least burdensome manner, the administration has initiated a comprehensive regulatory reform program. 1 An expanded discussion of this theme is found in Section 2 of the Special Analyses volume of the 1981 Budget, in a presentation entitled "Improving the Efficiency of the Federal Government." M4 THE BUDGET FOR FISCAL YEAR 1981 Early in 1978, Executive Order No. 12044 was issued, which required agencies to assess the economic consequences of all major new regulations, to write regulations in clear and simple English, to eliminate unnecessary rules, and to revise needed regulations. Legislation is pending to make these reforms law and to extend them to the independent regulatory agencies. To encourage simplification of regulations, improve analysis of them, and make public participation in the regulatory process more effective, the President has created the Regulatory Council to review conflicting or overlapping regulations and to advise the public well in advance of any major rules that are proposed. The administration proposed and the Congress approved deregulation of the airlines, and legislation has been submitted for deregulation in the trucking and railroad industries. Regulatory reform initiatives have been combined with a broad program to reduce Government paperwork. At his first Cabinet meeting, the President directed agency heads to take steps to reduce paperwork burdens. A vigorous program on the part of the agencies in the past 2 years has reduced by almost 15% the number of hours the public spends filling out Federal forms. In addition, an Executive order has recently been signed establishing a mandatory "paperwork budget" for all executive branch agencies and requiring a "sunset" review of all existing Federal forms. The administration has also proposed legislation to consolidate, simplify, and in some cases eliminate various reports required by Congress, and has endorsed legislation to control the overall paperwork burden on the public. Reorganization.—Better organization can make Government more effective in its mission and more accountable to the public. To improve the organization and management of the Federal Government, the administration initiated the President's Reorganization Project. Since 1977, the President has proposed 13 reorganization initiatives to Congress, and all have been approved. These initiatives have strengthened the Federal Government's capacity to deal effectively with such critical issues as energy, education, national security and crisis management, and international trade and development. In 1979, for example, reorganization authority was used to consolidate enforcement functions related to the Alaska Natural Gas Transportation System under a single Federal inspector, creating a unique institution to manage the Federal role in a critical energy project. The President has also proposed new energy reforms to help reduce our dependence on foreign oil, including creation of an Energy Mobilization Board to expedite energy projects, and an Energy Security Corporation to spur development of a domestic BUDGET SUMMARY 23 synthetic fuels industry. In addition, the President will soon transmit to Congress a reorganization plan to strengthen the internal management and effectiveness of the Nuclear Regulatory Commission, increasing the ability of the Commission Chairman to integrate and lead the agency in activities requiring prompt and disciplined action. One of the most significant accomplishments of the reorganization effort was achieved when Congress approved creation of the Department of Education, giving education the Cabinet voice, the national leadership and the improved management this important function deserves. The Congress also approved a major reorganization to strengthen the Federal Government's international trade functions, increasing the Government's capacity to improve the export performance and import competitiveness of U.S. industry. In 1979, a reorganization plan combined several U.S. international development assistance programs into a new International Development Cooperation Agency to improve coordination of U.S. economic policies affecting the developing countries. In addition, several reorganization initiatives are underway to strengthen the management and coordination of our national security apparatus. The President recently approved a report on national security policy integration that has led to more effective coordination among national security agencies. Zero-base budgeting (ZBB).—1This is the third budget that has used zero-base budgeting. ZBB has required managers to examine programs at various funding levels and then rank the programs in order of importance. This requires explicitly identifying priorities, setting objectives, and developing alternatives for carrying out agency missions. Through this system agencies develop more effective programs with available resources. Multiyear budgeting.—This is the second budget prepared under a new 3-year planning system. Although 5-year budget projections have been published since 1970, explicit plans rarely extended beyond the budget year. The multiyear planning approach results in a better understanding of the longer run effects of current and proposed programs, and therefore in better decisions. Eliminating fraud and waste.—As a result of legislation supported by the administration, the President has in place Inspectors General in 15 departments and agencies. Their major role is to eliminate waste, fraud and error in the Federal Government. In addition, in May, 1979, the Executive Group to Combat Fraud and Waste in Government was established to insure a concerted administration effort to develop more effective procedures and better trained personnel to deal with fraud and waste. M4 THE BUDGET FOR FISCAL YEAR 1981 In the food stamp program, pending legislation would establish a system under which administrative funds could be withheld from a State with excessive errors in the certification of recipients. It is expected that this potential liability would be a sufficient incentive to improve State administration of the program. It is estimated that this system could save a total of about $1.0 billion from 1981 through 1985. This effort would be supplemented by allowing States to establish eligibility on the basis of the income of the previous month, rather than an estimate of the next month's income. Clients would also be required to report their income more frequently while participating in the food stamp program. The Inspectors General in the Departments of Agriculture and Health and Human Services have instituted computer matching systems to compare names of welfare recipients with names of persons receiving State unemployment benefits, or the names of wage earners from payroll data for Federal, State, or local governments. This fairly simple technique frequently identifies recipients whose income makes them ineligible. It is highly effective in the detection of fraud. Financial management.—The administration, in consultation with the Congress and the Comptroller General, has developed a Financial Priorities program to improve management of Federal funds. These priorities include examining accounting systems, improving internal control and cash management, resolving audit findings promptly, and other measures to improve agency financial systems. This program has built upon the work of the cash management project, which initiated over 80 measures to strengthen cash management in the Federal Government. These initiatives have already resulted in interest savings of more than $400 million a year, and further annual interest savings of $1 billion are expected in subsequent years through more timely collection of cash payments, controlling disbursements and reducing idle balances. Audit reform.—The administration has improved its coordination of Federal, State, and local audits of federally assisted programs. A single audit is now required of each recipient of Federal aid; previously a recipient could have been audited for each of several programs, resulting in duplication by Federal auditors and unnecessary disruption to the grantee. The single audit will be based on a standard audit guide that replaces almost a hundred different guides that had been in use. New rules have been issued for relying on audits made by State and local governments, for audit resolution, and for audit followup. Management improvement.—The administration has taken concrete steps to strengthen agency commitments to ongoing manage BUDGET SUMMARY 25 ment improvement and evaluation activities. New guidelines have been issued to agencies on how they should establish systematic approaches to assessing their management and program operations, focusing on the results of program activities and their relevance to the Federal budget. Another important management improvement initiative was the establishment, in September 1979, of the President's Management Improvement Council, consisting of representatives from private industry, labor unions, universities, and Federal, State, and local governments. The Council has advised on management solutions to problems in the Government's debt collection programs, health care financing administration, administrative services programs, and travel expenditures by Federal agencies. Federal grants system reform.—State and local governments received more than $80 billion in grants in 1979 from the Federal Government, compared with fewer than $60 billion in 1976. Only 25 programs account for 81% of this total, while almost 466 separate grant programs account for the remaining 19%. The administration has taken major steps to simplify and streamline the management of Federal grants. The administration has proposed consolidation or simplification of grant programs in 10 areas to facilitate more efficient grant administration. Steps have been taken to improve audit regulations by developing standard audit rules for State and local grants, allowing a single, coordinated audit on a Government-wide basis. In addition, since June 1977, 16 Federal agencies have been working to reform and standardize planning requirements associated with more than 160 grant programs. Productivity.—The President has established the National Productivity Council to improve coordination of Federal programs that increase productivity in the private and public sectors. The Council has addressed a wide range of issues, including improved ways of measuring productivity, a new productivity improvement program for the Federal workforce, expanded federally supported labor-management cooperation projects, Federal research and development that increases productivity, and the Federal role in improved State and local government productivity. In addition, as a result of a study of industrial innovation, the President recently announced nine areas where the Federal Government can encourage innovation. These include increasing and enhancing the transfer of technical information, improving our regulatory system, and facilitating labor-management adjustments to innovation. The Government-wide reforms described above have contributed significantly to improving the organization and management of the Federal Government. These initiatives will continue and expand as M4 THE BUDGET FOR FISCAL YEAR 1981 necessary to promote efficiency and improve program management. Individual projects.—In addition to these Government-wide efforts, individual agencies continually undertake hundreds of smaller and less conspicuous projects. They may receive little or no recognition, but in total, they have a significant effect on the capacity of Government to deliver services more effectively and more efficiently. The following sections describe just a few of these projects, some of which are specific improvements resulting from the Government-wide efforts. Restructuring of programs in ways that make it easier to attain objectives,—In 1979 the Economic Development Administration (EDA) found it worthwhile to delegate expanded authority to Regional Directors. As a result, fewer than 25% of all EDA projects now need to be approved in Washington. In addition, plans are continuing that would expand the number of regional offices from 6 to 10. This should improve the coordination of these programs with other Federal agencies and provide better service to EDA's clients. Simplification of program requirements.—As a result of a change in policy, food stamp eligibility standards were recently simplified. Eligibility status and benefit levels were recalculated for the entire food stamp caseload of over 18 million people in 1979. Benefits were reduced for many recipients at the upper end of the eligibility scale and about 3.6 million new and very poor recipients were brought into the program primarily due to the elimination of the requirement to purchase food stamps. About 600,000 of the highest income recipients were completely eliminated from the program. These changes produced a net increase of 3.0 million recipients during the first 6 months of 1979, and directed food stamp benefits to those most in need. Another example of program simplification resulted from the Social Security Financing Amendments of 1977. Employers now report employee wages annually rather than quarterly, a change that has significantly reduced administrative costs and paperwork for both the private sector and the Federal Government. Improvements in service delivery.—Grant consolidations, or other actions to give States and localities more flexibility in the use of grant funds, were approved or have been achieved or proposed in 10 program areas: • Consolidations have been achieved in three areas. Grants in the cooperative forestry program were authorized to be consolidated in the Cooperative Forestry Act of 1978. Some pro BUDGET SUMMARY 27 grams for the elderly were consolidated in the 1978 Amendments to the Older Americans Act, and some consolidations were requested by the administration and approved by the Congress in 1979 for vocational rehabilitation. • Legislation that would permit consolidation in four areas (airport development, economic development, energy conservation, and environmental programs) is currently before the Congress. • Three additional areas for consolidation are in this budget: health programs, youth training and employment programs, and fish and wildlife grants. New consolidations are proposed for vocational rehabilitation in addition to those already achieved. Termination of programs.—Large budget savings are usually achieved through cutting back or redirecting large programs, rather than through program terminations. Programs that are completely terminated tend to be small and, individually, the savings achieved through termination are not large compared to the budget totals. Such terminations, however, are essential if Government is to be efficient. A few of the programs already terminated or proposed for termination in this budget are: • health professions training programs that are not targeted to meeting health needs of underserved populations. These terminations affect general aid for the training of doctors, dentists, nurses, and other health professionals. • grants for the development of private, non-profit home health agencies. Where needed, funds are provided through medicare and medicaid reimbursements, and this separate grant program is no longer necessary. • certain highway programs. These include aid for roads that are not part of the Federal-aid highway system, the Alaska highway, access highways to some public recreation areas, and demonstration projects for railroad crossings. Administrative or management improvements that increase productivity or save dollars or personnel.—The Federal Government is the world's largest user of information technology. The use of computers for analysis and data processing throughout the Government has significantly increased program efficiency. For example: • Social security applicants can now frequently complete their applications with a single visit to the local office because of computer access to social security employment records. Formerly, a second visit was necessary with delays of weeks while records were processed manually and mailed to the local offices. M4 THE BUDGET FOR FISCAL YEAR 1981 • The Internal Revenue Service has installed an automated data system to check the accuracy and currency of taxpayer identification data, enabling the Service to reduce its staff by 200 individuals. • The Department of the Treasury has increased significantly the use of electronic funds transfer as an improved Government payment system. These transfers now account for approximately 25% of all Treasury payments, and by 1985 this could increase to 55%. This has not only saved resources but also decreased the chances of theft and forgery of Government checks. In addition to the use of computers, Government saves funds and reduces personnel through other efforts. For example, since January 1977, the Department of Defense has eliminated approximately 24,000 military and civilian positions as a result of base realignments, consolidations, and closures. The estimated annual savings that will ultimately result from these actions are over $375 million. In addition, final decisions are pending on actions that would increase the annual savings to over $500 million a year. Elimination of wasteful practices.—The Federal Government is committed to phasing out its own use of gas-guzzling automobiles by requiring new automobiles to be more fuel efficient. Beginning with model year 1978, the new passenger vehicle fleet purchased or leased by Federal agencies must exceed the national average fleet fuel economy standards required by the Energy Policy and Conservation Act. For model year 1980, for example, the national average is 20 miles per gallon, while Federal purchases must average at least 24 miles per gallon. Since about one-sixth of the Federal fleet is replaced each year, major progress has already been made. In 1978, the Social and Rehabilitation Service was eliminated, and all cash benefit programs were consolidated in the Social Security Administration. The Health Care Financing Administration was established to manage medicare and medicaid and the title XX social services program was combined with the other services programs in the Office of Human Development Services. These actions streamlined administration of the programs and improved services to the public. These are just a few examples of hundreds of specific projects that agencies undertake regularly to improve their effectiveness. Such efforts will continue to make Government work better. PART 3 ECONOMIC ASSUMPTIONS AND THE LONG-RANGE BUDGET OUTLOOK 29 ECONOMIC ASSUMPTIONS AND THE LONGRANGE BUDGET OUTLOOK This part of the budget discusses the long-range budget outlook and the economic assumptions and demographic trends underlying that outlook. The first section presents economic assumptions for calendar years 1979 through 1985, explains the nature of these assumptions, and discusses policies to reduce unemployment and inflation. The second section examines the budget's multi-year planning base for fiscal years 1981 to 1983 and the projections for 1984 and 1985. The third section discusses population change and economic trends, and their long-term effects on the budget. ECONOMIC ASSUMPTIONS The economy and the budget are interrelated. Economic conditions significantly affect the budget, and the budget, in turn, influences economic conditions. Both budget outlays and the tax structure have substantial effects on national output, employment, and inflation. Budget receipts vary with individual and corporate incomes, which respond both to real economic growth and to inflation. Variations in receipts, as well as some benefit payments, such as unemployment compensation, can serve as "automatic stabilizers" for the economy by restraining growth during boom periods and cushioning economic downturns. Other activities of Government that are not reflected in the budget totals, such as loan guarantees, off-budget outlays, and regulatory requirements, also affect the economy, although their effects are generally less direct and less easily measured. Conversely, outlays for many Federal programs are directly linked to developments in the economy. For example, most retirement and other social insurance benefit payments are now tied by law to cost-of-living indexes. Medicare and medicaid outlays are affected directly by the price of medical services. Interest on the debt is linked to market interest rates and the size of the budget surplus or deficit, both of which in turn are influenced by economic conditions. Outlays for certain benefits, such as unemployment compensation and food stamps, vary with unemployment and incomes and are thereby linked to the state of the economy. Because of the complex interrelationships between the budget and the economy, budget estimates depend to a very significant extent upon economic assumptions. The economic assumptions 30 31 OUTLOOK used for developing the budget estimates are presented in the following tables to assist in understanding the budget estimates and projections and the administration's fiscal strategy. These economic assumptions are on a calendar year basis, as is customary for economic statistics, whereas the budget estimates are for fiscal years. During 1977 and 1978, employment rose at a 4.1% average annual rate, a rate virtually unprecedented for peacetime. The SHORT-RANGE ECONOMIC FORECAST (Calendar years; dollar amounts in billions) Forecast Item Major economic indicators: Gross national product, percent change, fourth quarter over fourth quarter: Current dollars Constant (1972) dollars GNP deflator (percent change, fourth quarter over fourth quarter) Consumer Price Index (percent change, December over December) 2 Unemployment rate (percent, fourth quarter) Annual economic assumptions: Gross national product: Current dollars: Amount Percent change, year over year Constant (1972) dollars: Amount Percent change, year over year Incomes: Personal income Wages and salaries Corporate profits Price level: GNP deflator: Level (1972 = 100), annual average Percent change, year over year Consumer Price Index: 2 level (1967 = 100), annual average Percent change, year over year Unemployment rates: Total, annual average Insured, annual average 2 Federal pay raise, October (percent) 4 Interest rate, 91-day Treasury bills (percent) < Actual 1978 1979 ' 1980 1981 13.4 4.8 10.0 0.8 7.9 -1.0 11.7 2.8 8.2 9.1 9.0 8.6 9.0 5.8 13.2 5.9 10.4 7.5 8.6 7.3 2,128 12.0 2,369 11.4 2,567 8.3 2,842 10.7 1,399 4.4 1,431 2.3 1,423 -0.6 1,448 1.7 1,717 1,103 206 1,923 1,227 238 2,109 1,342 228 2,314 1,478 242 152.1 7.3 165,5 8.9 180.4 8.9 196.3 8.8 195.3 7.6 217.6 11.4 243.4 11.8 265.8 9.2 6.0 3.3 5.5 7.2 5.8 3.1 7.0 10.0 7.0 3.9 * 6.2 10.5 7.4 4.0 8.0 9.0 »Actual data for the 1979 unemployment rate, Federal pay raise, and 91-day Treasury bill rate. * CPI for urban wage earners and clerical workers. Two versions of the CPI are now published. The index shown here is that currently used, as required by law, in calculating automatic cost-of-lrving increases for indexed Federal programs. »This indicator measures unemployment under State regular unemployment insurance as a percentage of covered employment under that program. It does not include recipients of extended benefits under that program. * General schedule pay raises become effective in October of each year-the first month of the fiscal year. Thus, the October 1980 pay raise will set new pay scales that will be in effect during fiscal year 1981. 1 This is the projected pay increase for white collar workers and wage board employees. The pay raise for military personnel is estimated to be 7.4%. * Average rate on new issues within period. These projectors assume, by convention, that interest rates decline with the rate of inflation. They do not represent a forecast of interest rates. M4 THE BUDGET FOR FISCAL YEAR 1981 unemployment rate fell from 7.8% in December 1976 to 5.9% in December 1978—despite the unusually rapid growth of the labor force. During 1979, employment continued to rise, though at a less rapid pace, and the unemployment rate remained about level. During the same period, however, inflation, as measured by the increase in the Consumer Price Index (CPI), accelerated substantially. Measured December over December, this index rose 63A% during 1977, 9 l A% during 1978, and an estimated 13 to 13 l A% during 1979. The 1979 increase was strongly affected by oil price increases. LONG-RANGE ECONOMIC ASSUMPTIONS (Calendar year?, dofiar amounts « blliafl) AiUiirctcrs 1332 Major economic indicators: Gross national product, percent change, fourth quarter over fourth quarter: Current dollars Constant (1972) dollars GNP deflator (percent change, fourth quarter over fourth quarter) Consumer Price Index (percent change, December over December) 1 Unemployment rate (percent, fourth quarter) Annual economic assumptions: Gross national productCurrent dollars: Amount Percent change, year over year Constant (1972) dollars: Amount Percent change, year over year Incomes: Personal income Wages and salaries Corporate profits Price level: GNP deflator: Level ( 1 9 7 2 = 1 0 0 ) , annual average Percent change, year over year Consumer Price Index:» Level ( 1 9 6 7 = 1 0 0 ) , annual average Percent change, year over year Unemployment rates: Total, annual average Insured, annual average 2 Federal pay raise, October (percent) * Interest rate, 91-day Treasury bills (percent) 4 1533 1334 1935 133 5.0 12.6 5.0 11.6 48 10.7 4.6 7.9 7,2 65 58 7.8 6,5 7.2 5.6 64 4.8 5.7 4.0 3,206 12.8 3,619 12.9 4,052 12.0 4,498 11.0 1510 4.3 1.586 5.0 1.65-4 4.9 1.742 4.7 2,591 1,653 277 2,914 1.874 324 3,256 2,094 369 3.610 2.316 415 212.3 8.2 228.1 7.4 243.5 68 258.3 6.1 287.4 8.2 303,8 7.4 329 8 6.8 349.7 6.1 6.8 3.6 8.0 8.4 5.9 30 7.5 7.7 5.1 2.4 7.0 7.0 4.3 2.0 6.5 6.3 «CP! for urban m p earners and clerical wcrters. Two versions of the CPI are new putiitf-ed r d m tfewn *ert a im? &r?tfry used. tf requiredfcylaw. in eaJculatng automats cost-offing increases for indexed Federal p c f r i m 1 This indicator measures uremploynwt under State regular unemployment insurance as a percentage cf cawed r w * « s ^ e r j r r r ^ - it does not indude recipients of extended benefits under But program. 1 General sdiedute pay raises become effects in October of eatf y e a r - t ^ fr>t ronn cf tN» fiscal p x V - a . ^ O t f t e t 133? w race «*it set new pay scales But wtll be in effect during fiscal year 1933. 4 Average rate on new issues period. These projections assume, by arvwtxjn. tftat irternt n ' n net represent a forecast of interest rates. r* ;t rfjen to OUTLOOK 33 The short-range economic assumptions for calendar years 1979 (for which only three quarters of actual data were available when the forecast was made), 1980, and 1981 are forecasts of probable economic conditions consistent with the administration's budget proposals. As the table indicates, it now appears likely (although, given the limitations of economic forecasting, by no means certain) that the sustained economic expansion that began in 1976 will come to an end in 1980. A mild recession is expected in the first half of 1980, and some increase in unemployment is likely. Economic growth is expected to resume in the latter part of the year and continue through calendar year 1981, with a gradual decline in the rate of unemployment. Some progress is expected in slowing inflation from the very high rate of last year, but the increase in consumer prices will still be very high by historical standards. The rate of increase forecast for the 12 months of calendar year 1981 is 8.6%. The economic outlook will have to be monitored carefully. If the economy should begin to deteriorate significantly, the administration will consider tax reductions and temporary spending programs, such as those for jobs and public works, targeted toward particular sectors of economic stress. Present conditions, however, do not argue for less fiscal restraint than is proposed in this budget. The economic forecasts for 1980 and 1981 are subject to substantial margins of error. For periods further in the future, economic assumptions are subject to even greater uncertainty. Hence, in contrast to the short-range economic forecast, the longer range assumptions for the period 1982 to 1985 are not forecasts of probable economic conditions. Instead, they are projections that assume progress in moving toward the goals of a more fully employed economy and greater price level stability. In last year's budget, estimates were presented consistent with achieving the goals of 4% unemployment and 3% inflation by the end of calendar year 1983. These goals had been established in the Full Employment and Balanced Growth Act of 1978 (the Humphrey-Hawkins Act). The act provides for revision of the timetable for achieving these goals, if necessary, in the 1980 Economic Report of the President Given the performance of the economy during 1979, and its projected performance during 1980 and 1981, it is apparent that the goals cannot be achieved in the timetable originally prescribed in the act. As a result, the long-range economic projections presented in this budget are consistent with a new M4 THE BUDGET FOR FISCAL YEAR 1981 schedule, presented in the Economic Report, for attaining the goals of the 1978 act. The achievement of the 4% unemployment rate goal is postponed by 2 years to 1985, and the 3% inflation goal is postponed by 3 years beyond that. These remain ambitious goals and will require effective long-run policies to reduce both unemployment and inflation. The feasibility of achieving these targets and the types of policies that might be required during the 1982-88 period to achieve them are discussed in the Economic Report The discussion below summarizes the major policies directed at unemployment and inflation in the budget proposals. Policies to reduce unemployment—Fiscal policy adjustments will probably be required in future years to maintain economic growth and further reduce unemployment. The appropriate magnitude and timing of such adjustments will depend on future economic developments and cannot now be determined. However, the administration will propose that further fiscal actions—in particular further tax reductions—be taken between 1982 and 1985 if such actions are required to sustain the progress of the economy toward the goals of the Humphrey-Hawkins Act. As the Humphrey-Hawkins Act declares, "aggregate monetary and fiscal policies have been unable to achieve" the economic goals established in the act "and therefore must be supplemented by other measures designed to serve these ends." Unemployment rates are very high for youth and minorities. The administration is therefore pursuing several strategies to reduce the sources of structural unemployment without adding to inflationary pressures. The budget proposes significant increases in resources for youth programs. A new program, conducted jointly by the Departments of Education and Labor, is proposed to provide disadvantaged youth with the basic academic skills and workplace discipline required to obtain and keep a job. For 1981, the budget requests $900 million for the education part of this program, which will assist secondary schools in areas with concentrations of disadvantaged youth. The part of the program to be conducted by the Department of Labor would replace three current youth employment and training programs. This part of the program would help place the students in jobs, and provide training and employment services for needy outof-school youth. For 1981, the budget requests $1,125 million for the Department of Labor portion of the program, $300 million more than would be needed to continue the programs to be replaced. In 1982, a further $800 million increase in funding is planned for the combined program. The Job Corps training program is being expanded and will provide twice the number of training opportunities made available OUTLOOK 35 in 1977. One million part-time summer youth jobs are proposed for 1981, the same number as proposed for 1980. The budget also proposes maintaining the high level of training and job opportunities in the programs for the structurally unemployed. These programs were revised last year to achieve greater net employment gains, to direct job opportunities more to the disadvantaged and long-term unemployed, and to improve the preparation of enrollees for private sector jobs. In response to an administration proposal, 1978 legislation authorized a special program to help move all program participants into private sector jobs. In addition, the Revenue Act of 1978 included an administration initiative to create a targeted employment tax credit to reduce the cost to private sector employers of hiring disadvantaged individuals, primarily youth. The employment tax credit for hiring employees placed in jobs under the work incentive (WIN) program and for hiring other public assistance recipients was revised to make it similar to the targeted employment tax credit. Finally, the administration has proposed reform of the welfare system which, if enacted promptly, could be fully effective by 1983. The plan would reform cash assistance programs, further develop the use of employment and training programs, and direct more jobs to principal earners in families eligible for cash assistance. These employment and training policies are discussed in more detail in Part 5, and their relationship to the goals of the Full Employment and Balanced Growth Act is analyzed in the Economic Report of the President Policies to reduce inflation,—The Full Employment and Balanced Growth Act specifies that "The President shall initiate specific policies to reduce the rate of inflation, including recommendations to the Congress where necessary, and include recommendations within the Economic Report and the President's budget to the extent practicable." The budget proposals help combat inflation in two ways: first, through overall budget restraint; and second, through measures that contribute to lowering rates of price increase in specific sectors of the economy. Budget restraint plays a crucial role in the administration's antiinflationary plan. Fiscal and monetary policies seek to create an economic environment in which inflationary pressures will abate. Monetary and fiscal restraint alone, however, will not be sufficient to reduce the rate of inflation at an acceptable rate. Moderation in private sector wage settlements and prices is also essential. Braking the momentum of inflation will require continued widespread compliance by business and labor with the voluntary pay and price standards established by the administration. M4 THE BUDGET FOR FISCAL YEAR 1981 Numerous Federal programs and policies contribute, directly or indirectly, to holding down rates of price increase in specific sectors of the economy. Some programs regulate prices directly or promote competition. Avoiding undue fluctuations of agricultural commodity prices has long been a major objective of Federal policy. Regulation of "natural monopolies" such as electric utilities, antitrust law enforcement, and programs to foster small business and greater competition all contribute to holding down price increases. An effort is also being made to award more Government contracts on a competitive basis, especially for defense procurement, in order to reduce prices that the Government pays for goods and services. The administration is currently pursuing policies to reduce economic regulation in areas—particularly transportation—where regulation has tended to stifle competition and maintain unnecessarily high prices. The Airline Deregulation Act was enacted in 1978. The administration has proposed modifications to trucking and rail industry regulations and supports reduced regulation of intercity bus transportation. Another significant policy directed against inflation is the administration's proposal for hospital cost containment. This proposal would reduce price increases in a sector where inflation has been excessive for over a decade. Federal subsidies, tax expenditures, guarantees, insurance, grants to State and local governments, disaster assistance, and loans may also help, directly or indirectly, to hold down private sector costs and prices. Housing programs afford examples of each of these types of assistance. Federal warning and safety programs (weather service, coast guard, and air traffic control, for example) also help hold down private sector costs by reducing economic losses. Federal pay reforms and restraints on Federal employment will help reduce upward pressure on private sector wage rates. Policies to promote exports and stabilize the value of the dollar may help avoid increases in the costs of imports. An important set of Federal policies seeks to promote capital formation and increased productivity, which are explicit goals of the Humphrey-Hawkins Act, Increased productivity is essential to reducing inflation in the long run. Federal programs and tax policies that promote productivity growth include the investment tax credit and Federal support for research and development. In addition, Federal employment, training, and education programs, equal opportunity programs, and programs (such as support of housing mortgage markets) that contribute indirectly to labor mobility all help increase productivity, reduce structural unemployment, and make it possible to achieve employment goals with less inflationary pressure. OUTLOOK 37 Some proposals that have anti-inflation aspects are noted or discussed in more detail in other parts of the Budget, particularly Part 5, and in the Economic Report of the President THE 5-YEAR BUDGET OUTLOOK The effects of current budget decisions extend beyond the budget year. They establish program trends that have important influences on the size and composition of budgets for years into the future. Just as the composition and level of the 1981 budget have been largely determined by past decisions, the decisions and proposals it embodies will shape subsequent budgets. Thus, various proposals in the 1981 budget would significantly reduce the level of outlays for existing programs in future years. These reductions both improve the prospects for budgetary balance and help make room for the important initiatives in energy, welfare reform, national health insurance, and increased defense capabilities, within budget outlay totals that do not increase as a share of GNP. Since 1970, budgets have presented projections extending 4 years beyond the budget year. Last year, a multiyear budget planning system was established. As a result, outlay estimates for the first 2 years beyond the budget year (1982 and 1983) now receive explicit policy review, and represent tentative planning bases for executive branch agencies. Projections for 1984 and 1985 are extrapolations of the 3-year planning estimates for 2 years beyond the planning period. The estimates and projections through 1985 are summarized in this section. Part 5 of the budget displays and discusses in more detail the budget authority and outlay estimates of each budget function for the 3-year planning period, 1981-83. Basic assumptions.—The receipts projections presented in this section are consistent with the foregoing economic assumptions, and with continuation of current tax laws as modified by the proposals in this budget. The budget authority and outlay estimates indicate the degree to which resources would be committed by the continuation during 1982-85 of existing and currently proposed programs at the program levels recommended for 1980 and 1981, and planned for 1982 and 1983. These estimates are not precise forecasts of future budget authority or outlays. Nor are they intended as detailed, final recommendations as to future budget levels. They are, however, consistent with the objective of restraining growth in Federal spending, holding Federal outlays as a percentage of GNP to the lowest level consistent with national needs, and moving toward a balanced budget as rapidly as economic conditions and national security considerations permit. The multiyear budget base figures for 1982 and 1983 represent tentative M4 THE BUDGET FOR FISCAL YEAR 1981 administration plans for the long-term scheduling of major new initiatives and program reductions. These planning base estimates, and the projections to 1985, allow for future cost-of-living adjustments to most benefit programs, for anticipated changes in numbers of eligible beneficiaries, for Federal pay raises, and for other built-in cost changes (such as interest) consistent with the economic assumptions outlined above. They allow for real growth of outlays in certain areas, such as defense, research and development, and energy, and real decline in outlays in others. The estimates generally assume that programs remain level in real terms, except where there is an explicit budget recommendation, or multiyear budgeting plan, to increase or decrease program levels over time. The budget outlook.—The following table summarizes the budget outlook from 1980 to 1985 based on current law and proposals in this budget. Receipts are projected to increase by an average of 15.3% per year from 1981 to 1985, rising from $600 billion to $1,061 billion. Over the same period, outlays are projected to rise by an average of 10.0% a year, from $616 billion to $903 billion. Thus, under these assumptions, the budget is projected to move into surplus in 1982, with larger surpluses (or budget margins) in subsequent years. In the event, however, these large projected surpluses are unlikely to occur. THE BUDGET OUTLOOK, 1 9 7 M 5 (In billions of dollars) Estimate 1979 actual Budget outlays Budget receipts Budget surplus or deficit ( - ) ... .. Projection 1980 1981 1982 1983 1984 493.7 465.9 563.6 523.8 615.8 600.0 686,3 691.1 774.3 798.8 838.9 920.5 902.6 1,061.2 -27.7 -39.8 -15.8 4.8 24.5 81.6 158.6 1985 It is unrealistic to assume that Federal receipts will be permitted in the future to rise continually as a percentage of GNP, with an attendant rise in individual tax burdens. Frequent tax reductions were enacted in the 1970's to prevent such increases in tax burdens. In addition to preventing growing tax burdens, future tax reductions may be required as incentives to business investment and innovation, to raise productivity and reduce inflation. Thus, projections of significant surpluses in 1983 and subsequent years do not imply that resources of such magnitude will in fact be available for additional spending. Indeed, holding future tax burdens to levels consistent with recent experience will require stringent control of budget outlays if the budget is to be kept near OUTLOOK 39 balance in these years. The timing and structure of future tax reductions, however, cannot be projected in detail far in advance of events; they depend critically on economic developments, especially on progress in reducing inflation, and on the appropriate level of aggregate public sector savings, as discussed in the Economic Report of the President BUDGET RECEIPTS BY SOURCE (In Mfions of dollars) Individual income taxes Corporation income taxes Social insurance taxes and contributions.. Excise taxes Other Total MEMORANDUM: Effect of receipts proposals: In comparison to current services: Individual income taxes Corporation income taxes Social insurance taxes Excise taxes Other Total 1979 1980 1981 1982 1983 1984 1985 217.8 65.7 141.6 18.7 22.1 238.7 72.3 162.2 26.3 24.3 274.4 71.6 187.4 40.2 26.4 318.7 80.6 215.9 48.0 28.0 381.4 91.8 243.4 51.7 30.5 455.7 105.5 270.2 55.6 33.5 538.3 118.8 307.7 59.9 36.4 465.9 523.8 600.0 691.1 798.8 920.5 1,061.2 -.4 -1.0 1.1 -3.2 1.4 21.5 .2 .7 —2.9 1.2 29.0 -4.2 i 32.2 .7 -3.2 .9 35.5 1.6 -.8 1.0 39.3 * * 21.0 28.0 7.8 * 6.4 * 28.8 33.9 * 41.1 • 550 million of less. The estimates of receipts shown in this section are extrapolations (based on the assumed economic trends) of the receipts that would result under existing tax law and the tax proposals in this budget. Projected increases in receipts by source from 1981 to 1985 are attributable largely to rising nominal-dollar incomes due both to inflation and to real growth, and to increases in social security taxes scheduled under current law. The table above shows projected receipts by source and the effect on receipts of administration tax proposals, other than those renewals of expiring provisions that are included in the current services receipts estimate. Individual income taxes are projected to rise from $274.4 billion in 1981 to $538.3 billion in 1985, a 96% increase. Corporation income taxes rise by 66% over this same period, from $71.6 billion to $118.8 billion. Tax proposals included in this budget result in a net decrease in income tax receipts in each year except 1985. Since the proposed windfall profit tax is an excise tax, it will be deductible from business income for income tax purposes. The estimates of income tax receipts reflect reductions of $7.5 billion in 1981 from the deductibility of the proposed windfall profit tax; these reductions M4 THE BUDGET FOR FISCAL YEAR 1981 are projected to reach $15.8 billion in 1985. For a more detailed discussion of this and other tax proposals, see Part 4 of this Budget Social insurance taxes and contributions, which were only 2.5% of GNP in 1958 but had reached 6.0% two decades later, are projected to rise to 7.0% of GNP by 1985. The combined employeremployee social security tax rate, which rose from 12.1% to 12.26% of the taxable earnings base on January 1,1979, is scheduled under current law to increase to 13.3% on January 1,1981, to 13.4% a year later, and to 14.1% on January 1,1985. The taxable earnings base is scheduled to increase annually, rising from its current level of $25,900 to a projected $42,900 by 1985. SOCIAL SECURITY TAX RATE AND TAXABLE EARNINGS BASE (Calendar years) Tax rate (FICA, percent) Taxable earnings base (dollars) 1 1979 1980 1981 1982 1983 1984 1985 12.26 22,900 12,26 25,900 13.3 29,700 13.4 32,400 13.4 35,400 13.4 39,000 14.1 42,900 'The taxable earnings base figures for 1982-85 are estimates based on an automatic adjustment mechanism. The figures for earlier years are scheduled under current law. Excise taxes are projected to rise from $26.3 billion in 1980 to $40.2 billion in 1981 and to $59.9 billion in 1985. These estimates reflect $7.7 billion in 1980 and $20.9 billion in 1981 from the proposed windfall profit tax; excise tax receipts from this proposal are projected to rise to $38.9 billion in 1985. The 1985 estimate also reflects $4.4 billion from the extension of the Highway trust fund taxes that are scheduled to expire September 30, 1984. Estate and gift taxes, customs duties, and miscellaneous receipts are projected at $36.4 billion in 1985, an increase of $10.0 billion from 1981. The estimates and projections of budget authority and outlays shown in this section are extrapolations (based on the assumed economic trends) of program costs reflecting current administration policy—including the 1981 budget proposals and the multiyear budget plans for 1982 and 1983. They are estimates of future resources and of the degree to which those resources are already committed by current policy. Total budget outlays are projected to increase at an average annual rate of 10.0% from $615.8 billion in 1981 to $902.6 billion in 1985. The major change in the composition of budget outlays over the last 10 years has been the rapid growth in payments for individuals and the corresponding relative decline in resources devoted to other programs. Until 1977, spending for national defense (in constant dollars) was declining. This trend has been reversed and real defense spending is projected to continue increasing through 1985. 41 OUTLOOK This would keep our defense effort at a little over 5% of gross national product in the early 1980's, compared to about 10% in the mid-1950's. PERCENTAGE COMPOSITION OF BUDGET OUTLAYS Actual Description Estimate Projection 1967 1973 1979 1981 1982 1983 1984 1985 NATIONAL DEFENSE: Direct Federal payments for individuals Other 1.2 42.0 1.8 28.4 2.1 21.7 2.2 21.5 2.3 21.8 2.3 21.7 2.3 22.4 2.4 23.1 Subtotal, national defense 43.1 30.2 23.8 23.7 24.1 24.0 24.7 25.4 24.1 35.5 40.3 43.0 42.5 44.5 44.6 45.1 3.1 6.5 6.5 16.7 5.8 11.1 7.0 10.4 5.8 10.9 8.6 10.5 6.1 9.5 8.8 8.8 6.1 9.2 7.9 10.2 5.9 8.6 6.8 10.2 6.0 8.1 6.2 10.3 6.1 7.7 5.7 9.9 56.9 69.8 76.2 76.3 75.9 76.0 75.3 74.6 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 NON-DEFENSE: Direct Federal payments for individuals .... Payments for individuals through States and localities All other grants to States and localities,, Net interest Other Subtotal, nondefense Total budget outlays Budget outlays are projected to increase by $286.9 billion between 1981 and 1985. National defense and human resources programs, including national health insurance and welfare reform, account for 91% of this increase. Most of the increase results from demographic changes and inflation, rather than expansion of the scope of Federal activity through creation of new programs or liberalization of existing ones. This may be seen from the fact that the major planned initiatives included in the projections, national health insurance, welfare reform and contingencies, real growth in defense, and the energy security programs, account for only 27 % of the total projected 1981-85 outlay increase. Projections of budget authority and outlays are shown by function and by agency on pages 45 to 47. While total outlays are projected to increase by 47% from 1981 to 1985, outlays for health, excluding national health insurance, and national defense are projected to increase faster than the total. Outlays for these functions rise by 61% and 57%, respectively. With the allowance for national health insurance included, health outlays increase by 109% over the 4-year span, even with enactment of hospital cost control and other savings measures. By way of comparison, GNP is projected to rise by 58% from calendar year 1981 to 1985. Trends in the functional composition of the budget are discussed further in the introduction to Part 5. M4 THE BUDGET FOR FISCAL YEAR 1981 The high-employment budget is an analytical concept based on the budget estimates that would result were the economy continuously operating at a high level of employment. The unemployment rate at high employment is estimated to be 5.1% currently and to decline to 4.8% by the end of 1985. These rates are comparable to a rate of about 4.0% in 1955, adjusted for changes in the composition of the labor force. High-employment outlays exclude that portion of outlays for unemployment insurance benefits and certain other programs that occur because the economy is not continuously operating at high employment. They thus eliminate the fluctuations in actual outlays for these programs due to year-to-year changes in the unemployment rate. High-employment receipts are similarly computed on the basis of the estimated yield of the existing (or proposed) Federal tax system if the economy were continuously at high employment. This eliminates year-to-year fluctuations in actual receipts due to deviations in the rate of economic growth from its long-term trend. The difference between the adjusted receipts and outlay estimates is the high-employment budget margin. Changes in this margin from one year to the next are a rough measure of the direction and magnitude of discretionary fiscal policy actions (i.e., excluding the effects of automatic stabilizers). HIGH-EMPLOYMENT RECEIPTS AND OUTLAYS {In billions of dollars) Estimates 1979 High-employment receipts High-employment outlays High-employment budget margin 1980 1981 Projections 1982 1983 1984 1985 479 491 561 557 660 603 749 674 840 766 938 835 1,052 904 -12 4 57 75 74 103 148 High-employment outlays are estimated at $603 billion in 1981 and $904 billion in 1985. High-employment receipts are projected to increase from $660 billion in 1981 to $1,052 billion in 1985. The high-employment margin shifts sharply in the direction of surplus in 1981, rising by $53 billion. This large rise reflects the very restrictive fiscal posture proposed in the 1981 budget. By 1985, the projected high-employment margin rises to $148 billion. Controllability.—Outlays in any one year are considered to be relatively uncontrollable when the program level is determined by existing statute or by contract or other obligations. Relatively uncontrollable outlays are grouped into two major categories: openended programs and fixed costs, outlays for which are generally 43 OUTLOOK mandated by law; and payments from prior year contracts and obligations, outlays for which are required because of previous actions, such as entering into contracts. As recently as 1967, openended programs and fixed costs accounted for only 36% of total outlays. By 1973 they were more than 50% of the budget and in 1981 they are estimated to be 59%. The substantial growth since 1967 has been due primarily to the rapid increase in benefit payments for individuals. Outlays for the existing open-ended programs and fixed costs are projected to be 55% of budget outlays in 1985. With renewal of general revenue sharing and enactment of welfare reform and national health insurance before 1985, however, outlays in this category would be 60% of the budget total in that year. CONTROLLABILITY OF BUDGET OUTLAYS (In billions of dollars) 1981 Relatively uncontrollable under present law«: Open-ended programs and fixed costs: Social security and railroad retirement.... Medical care Other payments for individuals Net interest General revenue sharing (existing law).. Other open-ended programs and fixed costs Total, open-ended programs and fixed costs, current law 1982 1983 1984 1985 142.1 53.9 102.5 54.8 1.7 159.8 62.0 108.3 54.6 178.5 70.9 113.9 53.9 197.1 80.9 117.7 53.4 216.0 92.2 123.4 53.4 10.1 9.2 10.2 11.1 11.5 365.1 393.* 427.3 460.2 496.6 - . 1 * -.8 5.1 .7 -.4 .7 -1.4 6.9 1.3 24.1 -.7 .9 -2.0 6.9 1.7 27.1 -1.0 1.1 -3.1 6.9 2.2 30.4 -1.3 1.3 —4.6 6.9 2.5 Proposed changes in open-ended programs and fixed costs: National health insurance Disability (social security) Military retirement pay Changes to medicare and medicaid General revenue sharing (renewal) Other Outlays from prior-year contracts and obligations 1 Relatively controllable outlays 101.4 150.3 291.7 322.7 352.2 377.8 Undistributed employer share, employee retirement -6.2 -6.4 -6.5 -6.7 -6.9 615.8 686.3 774.3 838.9 902.6 Total budget outlays ' Outlays from prior-year contracts and obligations are relatively uncontrollable in the budget year. In the longer run, most of them can be controlled (e.g., by not entering into contracts); therefore, they are not projected beyond the budget year. Historical data for this category, and estimates for 1980 and 1981 are shown separatefy in table 17, Part 9. Outlays from prior-year contracts and obligations account for an additional 15% to 18% of the budget and are classified as relatively uncontrollable in the short run. This category is not projected beyond the budget year because for future years these amounts are generally controllable now—before the contracts and other obliga M4 THE BUDGET FOR FISCAL YEAR 1981 tions under which they will occur have been entered into. However, it is likely that at the time each budget is prepared the total relatively uncontrollable portion will continue to comprise about 75% of total outlays for the year ahead. The fact that such a large proportion of the budget is relatively uncontrollable has important policy implications. Without legislative changes to restrain the growth in relatively uncontrollable programs, the burden of efforts to control total budget outlays must fall disproportionately on a small portion of the budget. Success in restraining that portion causes it to shrink even further relative to the uncontrollable portion. The administration has proposed legislation to restrain the growth of some of the relatively uncontrollable programs. On the other hand, the welfare reform and national health insurance initiatives will, upon enactment, add to relatively uncontrollable outlays. The administration has instituted a multiyear planning system to provide greater control of the Federal budget. With a longer planning horizon, a greater portion of the budget can be considered "relatively controllable." OUTLOOK 45 BUDGET AUTHORITY BY FUNCTION (In billions of dollars) Estimates 1981 National defense Military personnel Retired pay Operation and maintenance Procurement Other International affairs General science, space, and technology Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment, and social services Education Training and employment Social services and other Health . Medicare Medicaid Other Income security Social security Federal employee retirement Unemployment compensation.... Public assistance and income supplements.. Other Veterans benefits and services Administration of justice General government General purpose fiscal assistance Interest Allowances: Civilian agency pay raises National health insurance Contingencies and other Undistributed offsetting receipts: Employer share, employee retirement Interest received by trust funds Rents and royalties on the Outer Continental Shelf Total budget authority 1982 Projections 1983 1984 1985 205.3 (32.9) (17.8) (56.0) (54.7) (43.9) 14.2 7.0 12.4 15.4 4.5 6.8 25.5 10.2 228.3 (33.1) (19.7) (60.3) (63.9) (51.3) 16.0 6.7 11.8 15.7 4.2 7.1 26.1 11.1 253.2 (33.7) (21.5) (66.0) (71.3) (60.6) 17.2 6.5 11.6 15.5 4.7 7.0 26.9 10.7 37.4 (17.6) (12.4) (7.5) 83.2 (53.4) (19.0) (10.8) 285.7 (150.5) (28.2) (23.0) (76.7) (7.3) 23.8 4.9 5.3 9.7 68.0 39.4 (19.0) (12.7) (7.7) 94.5 (61.3) (21.6) (11.7) 310.5 (169.8) (29.7) (23.8) (79.5) (7.6) 24.9 5.0 5.0 9.3 68.3 41.3 (20.1) (13.2) (8.0) 106.5 (69.5) (24.4) (12.4) 335.3 (190.1) (31.2) (23.9) (82.1) (8.0) 26.1 5.2 5.2 8.8 68.9 42.1 (21.4) (12.5) (8.2) 120.6 (79.3) (27.5) (13.3) 369.6 (219.9) (32.5) (22.6) (86.1) (8.5) 27.1 5.4 5.3 8.9 70.0 1.1 3.3 2.0 7.9 5.4 24.1 8.5 7.6 27.1 10.9 9.7 30.4 11,2 —6.2 - 6 . 4 - 1 3 . 0 —14.1 -6.5 -15.4 — 6.7 -16.7 — 18.2 161.8 (32.0) (13.7) (48.6) (40.5) (26.9) 16.9 6.9 7.4 13.3 5.5 5.9 23.6 9.8 183.4 (32.5) (16.1) (52.3) (47.3) (35.3) 14.2 6.9 9.2 14.7 4.2 6.6 23.2 9.7 34.8 (16.5) (11.9) (6.5) 71.5 (45.0) (16.5) (10.1) 251.5 (131.1) (26.5) (19.4) (67.5) (7.0) 22.7 4.7 4.9 9.6 67.2 -6.9 —6.0 —6.0 -6.0 -6.0 -6.0 696.1 775.1 868.5 940.4 1,022.6 MEMORANDUM Budget authority, off-budget Federal entities.... 24.2 22.4 24.1 27.5 20.3 Budget authority, including off-budget Federal entities 720.2 797.5 892.5 967.9 1,042.8 M4 THE BUDGET FOR FISCAL YEAR 1981 BUDGET OUTLAYS BY FUNCTION (In billions of dollars) Estimates National defense Military personnel Retired pay Operation and maintenance Procurement Other International affairs General science, space, and technology Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment, and social services Education Training and employment Social services and other Health Medicare Medicaid Other Income security Social security Federal employee retirement Unemployment compensation Public assistance and income supplements.. Other Veterans benefits and services Administration of justice General government General purpose fiscal assistance Interest Allowances: Civilian agency pay raises National health insurance Contingencies and other Undistributed offsetting receipts: Employer share, employee retirement Interest received by trust funds Rents and royalties on the Outer Continental Shelf Total budget outlays Projections 1981 1982 1983 1984 1985 146.2 (31.7) (13.7) (46.4) (30.5) (23.9) 9.6 6.4 8.1 12.8 2.8 .7 20.2 8.8 165.5 (32.2) (16.1) (49.9) (36.1) (31.2) 10.2 6.9 11.0 13.7 3.0 3.2 21.6 9.4 185.9 (32.5) (17.9) (53.4) (43.6) (38.5) 11.2 7.0 13.5 14.1 3.9 3.1 23.2 9.9 207.3 (32.8) (19.7) (57.6) (50.7) (46.6) 12.2 6.8 14.0 14.4 4.5 3.0 24.2 10.1 229.7 (33.4) (21.5) (63.0) (57.2) (54.5) 13.0 6.6 11.8 14.7 5.2 2.7 24.9 10.3 32.0 (14.4) (11-3) (6.3) 62.4 (37.3) (15.9) (9.2) 220.0 (136.9) (17.1) (18.8) (40.1) (7.2) 21.7 4.7 4.9 9.6 67.2 35.0 (16.3) (11.8) (6.9) 70.8 (42.4) (18.4) (10.1) 241.7 (154.3) (19.4) (17.4) (43.6) (7.0) 23.2 4.9 5.1 9.7 68.0 37.7 (17.7) (12.3) (7.7) 79.9 (48.1) (21.0) (10.9) 264.0 (172.0) (21.7) (15.6) (46.9) (7.7) 24.6 5.0 5.1 9.3 68.3 39.7 (18.9) (12.9) (7.9) 89.7 (54.4) (23.6) (11.7) 284.4 (190.0) (24.0) (13.7) (48.6) (8.1) 25.7 5.2 5.3 8.8 68.9 40.6 (20.1) (12.3) (8.2) 100.3 (61.1) (26.7) (12.5) 307.9 (208.3) (26.2) (12.0) (53.0) (8.4) 26.9 5.3 5.3 8.9 70.0 7.4 27.1 9.4 9.5 30.4 9.7 1.1 3.3 1.5 6.5 5.3 24.1 7.1 -6.2 -13.0 -6.4 -14.1 -6.5 -15.4 -6.7 -16.7 -6.9 -18.2 —6.0 -6.0 -6.0 -6.0 -6.0 615.8 686.3 774.3 838.9 902.6 18.1 15.1 12.9 11.3 14.4 633.9 701.4 787.2 850.2 917.0 MEMORANDUM Outlays, off-budget Federal entities Outlays, including off-budget Federal entities... OUTLOOK 47 BUDGET AUTHORITY BY AGENCY (In billions of doflars) Estimates Department or other unit Legislative and Judicial branches Funds appropriated to the President Agriculture Commerce Defense—Military Defense—Civil Education Energy Health and Human Services Housing and Urban Development Interior Justice Labor State Transportation Treasury Environmental Protection Agency National Aeronautics and Space Administration Office of Personnel Management Veterans Administration Other agencies Allowances Undistributed offsetting receipts Total budget authority Projections 1981 1982 1983 1984 1985 2.0 11.4 24.6 3.4 158.2 3.0 15.5 10.2 222.9 40.4 4.7 2.7 33.0 2.3 20.5 80.9 5.3 5.7 26.7 22.7 22.0 3.1 -25.1 2.2 13.0 25.6 3.7 179.4 3.9 16.6 11.0 254.8 47.6 5.0 2.7 37.0 2.5 20.0 81.8 5.8 5.8 28.5 23.8 19.1 12.0 -26.4 2.1 14.8 27.0 3.9 201.0 3.8 17.9 12.9 286.5 48.8 5.3 2.8 38.2 2.6 22.1 81.5 6.4 5.8 30.2 24.9 19.2 38.8 -27.9 2.1 15.6 27.7 3.9 223.7 3.7 19.0 12.6 318.3 51.4 5.5 2.9 38.9 2.7 22.7 81.5 6.7 5.5 31.8 26.1 21.1 46.4 -29.3 2.2 15.9 28.8 4.0 248.3 3.7 20.2 12.7 363.4 53.8 5.8 3.0 37.0 2.8 23.5 82.5 6.5 5.2 33.2 27.1 21.8 52.1 -31.1 696.1 775.1 868.5 940.4 1,022.6 BUDGET OUTLAYS BY AGENCY (In billions of dollars) Estimates Department or other unit Legislative and Judicial branches Funds appropriated to the President Agriculture Commerce Defense—Military Defense—Civil Education Energy Health and Human Services Housing and Urban Development Interior Justice Labor State Transportation Treasury Environmental Protection Agency National Aeronautics and Space Administration Office of Personnel Management Veterans Administration Other agencies Allowances Undistributed offsetting receipts Total budget outlays Projections 1981 1982 1983 1984 1985 2.0 9.3 20.1 3.4 142.7 3.1 13.5 8.7 219.3 11.8 4.2 2.7 31.8 2.2 17.9 80.3 5.2 5.4 17.4 21.7 15.7 2.6 -25.1 2.1 11.1 23.8 3.5 161.6 3.4 15.3 10.8 246.1 13.8 4.5 2.8 30.9 2.4 19.1 81.3 5.5 5.9 19.7 23.1 15.9 10.0 -26.4 2.1 13.4 25.7 3.7 181.7 3.4 16.8 12.2 274.2 15.3 4.9 2.8 29.6 2.5 20.3 81.1 5.7 5.9 22.1 24.6 17.1 37.3 -27.9 2.2 14.0 27.4 3.9 202.8 3.3 17.8 13.4 301.5 16.9 5.2 2.9 28.3 2.6 21.0 81.2 5.9 5.7 24.4 25.7 17.2 44.7 -29.3 2.2 14.5 28.8 3.9 224.8 3.3 19.0 11.5 331.6 19.7 5.5 3.0 26.2 2.7 21.5 82.2 6.2 5.4 26.8 26.9 17.5 50.4 -31.1 615.8 686.3 774.3 838.9 902.6 M4 64 THE BUDGET FOR FISCAL YEAR 1981 THE LONGER RANGE BUDGET OUTLOOK As the preceding section notes, 5-year budget projections represent a rough approximation of future budget trends. For some analytical purposes, however, a 5-year planning horizon is much too short. This has long been apparent to the actuaries of insurance and pension systems, for example, who must frequently make calculations that reach decades into the future. Such calculations are subject to error because they rely on assumptions about future events that cannot be known in advance, such as the long-run course of the economy. Yet some preparation for the longer-range future is essential. Federal responsibilities in such areas as energy, education, retirement, health, research and development, and defense raise long-range issues, the resolution of which will significantly affect the size and composition of the Federal budget, in somewhat foreseeable ways, well into the 21st century. Specifically, Federal Government responsibilities and how they are carried out in the longer range are particularly important in several areas emphasized in the 1981 budget: • Reduction of our dependence on foreign sources of energy and the development of secure long-range alternative energy supplies are essential to economic prosperity. • Understanding and planning for the large increase in the size of the over-65 aged population that lies three decades ahead will affect a broad range of policies, from pension financing to retirement age. • The gradual aging of the population has implications for health services and long-term care strategies. • Consideration of possible economic developments due to changing age structure in society may help improve housing policy, affect savings patterns, and influence national investment strategy, • Maintaining a strong defense requires long-term planning, weapons development, and personnel recruitment and compensation strategies. • Basic research is an essential condition for strong technological development, but realization of its benefits often takes decades. • Education and training requirements will vary in future decades, as the school-age and college-age populations decline, increase, and probably decline again, and as labor markets adjust. The sections that follow consider some of these issues. The first topic considered is likely demographic trends. This is because demography is the most significant factor affecting the budget that is fairly predictable. Population change.—The Federal Government exists to serve the needs of the American people. The size and composition of its OUTLOOK 49 budget, therefore, is a reflection of the size and composition of the U.S. population, and of the needs of various segments of that population. The budget is particularly sensitive to the age structure of the population, because many programs (e.g., education and retirement) serve specific age groups. As last year's Budget noted (pp. 52-57), the most prominent fact about the U.S. population age distribution today is the existence of a huge "age-lump" consisting of the postwar baby boom generation, and preceded and followed by the "baby busts" of the 1930's and early 1940's (World War II), and the late 1960's and 1970's, as the chart below shows. During the depression of the 1930's relatively few children were born— fewer than 2Vz million in most years. After the Second World War A g e Distribution of U.S. Population, 1980 Population of tach Ag« (Millions) Population at eoeh Age (Millions) came the "baby boom," which peaked in 1957 when 4.3 million children were born. Now, although there are many more women of prime child-bearing age (the women born during the boom), their fertility is only half that of their mothers, and in recent years only about 3 million children have been born annually. The numbers of this baby boom generation—especially in comparison to the relatively small generations preceding and following them—have significant and relatively predictable (but frequently overlooked) implications for American society and the economy. 50 THE BUDGET FOR FISCAL YEAR 1981 Over the course of the life-cycle, from youth to old age, people make different demands upon, and contributions to, society, the economy, and government. Children need support, education, and adult supervision. Young adults seek housing of their own and jobs—and it is from this age group that the armed services recruit. Middle-aged workers are at their peak earning, saving, and taxpaying years. The elderly need pension support and more health care, and other assistance, than younger people generally require. Thus the baby boom generation and the changing age structure of our population have significant implications for government programs. Education.—Although the first impact of the baby boom was no doubt on maternity wards in hospitals, its first major impact on government was public education. This began with the enormous pressure to expand elementary school facilities and employment. Between 1950 and 1970, elementary school enrollment rose by 63%. But between 1970 and 1980, enrollments declined by an estimated 16%, and by 1985, they should decline by a further 5V2%. The same phenomenon is now overtaking secondary education; between 1976 and 1992 the number of 14- to 18-year-olds in the U.S. population is projected to decline by 24%. Higher education, which has experienced the same boom, now faces the same shrinkage in its traditional student age-group, about 4 years later than the secondary schools. As the output of the American educational system declines in quantity, improvements in quality should become increasingly important, if the Nation is to benefit from steadily advancing technological sophistication. This year the new Cabinet-level Department of Education will begin to operate. A key role of the new department will be to assist in the adjustment of American education to the demographic changes and new economic demands of the decades ahead. State and local governments bear most of the burden and responsibility for education in this country. The baby boom has had its major effect on their budgets, which rose from less than 7% of GNP in 1948 to over 15% in 1975, but have since dropped to 14%. Economic considerations.—As members of the baby boom generation have completed their schooling, they have entered the labor force. During the 1970's, the civilian labor force grew by 22 million (27 V2%)—compared to only IVz million during the 1950's (an 11%% increase) and 12 million during the 1960's (18%). During the 1980's, rapid growth will continue, but at a declining rate. During the 1990*8, the rate of growth of the labor force is likely to be only about a third of the rate experienced during the 1970,s. Growth of the labor force is one of two key determinants of longterm economic growth; the other is the rate of growth of productiv OUTLOOK 51 ity, or output per worker. Economic growth, relative to population increases, is the primary determinant of our national standard of living. It also influences the growth in resources available to the Federal budget. The Federal budget has been roughly one-fifth of the gross national product (GNP) throughout the postwar period; but during periods of rapid economic growth, it is easier to fund Federal services or reduce the size of the budget as a percent of GNP. The massive influx of the baby boom generation into the labor force during the late 1960's and the 1970's helps to explain some of the anomalies of economic performance during this period. Unemployment averaged 6.2% for the 1970's, compared to a 4.6% average for the 1947-69 period. This occurred despite extraordinarily rapid increases in employment during the decade. Productivity growth averaged only half a percent per year, 1973-79, in contrast to a 2*4% per year average, 1947-73. Entry of the baby boom generation into the labor force helps account for this deterioration in productivity from the mid-1960's onward. It does this in two ways: first, inexperienced young workers are, on average, less productive than their older, more experienced colleagues. Second, business investment has not matched the accelerated growth of the labor force; indeed, the Nation's stock of productive capital grew somewhat less rapidly during the 1970's than during the preceding postwar years. Thus, as the baby boom flooded the job market, the amount of capital plant and equipment per worker grew much less rapidly than it had in the past—with an adverse effect upon productivity. As labor force growth slows in future years, and as the number of teenagers in the labor force begins to decline, labor productivity should rise, labor markets may tighten and it is possible that labor shortages will develop. If so, the need to continue a high level of Federal investment in training, employment, and labor services should be reexamined. There are grounds for optimism about the strength of capital investment in the 1990's, as well. The slow growth of the labor force should induce businesses to invest heavily in order to substitute capital for scarce and relatively expensive labor. At the same time, new products and new methods of production resulting from a higher rate of technological innovation may also tend to stimulate new investment. With investment strong and labor force growth slow, the amount of capital per worker would grow rapidly (in contrast to its sluggish pace in the 1970*8), contributing to productivity gains. Ample savings should be available to finance high rates of investment as the baby boom generation reaches the peak saving and peak earning years of middle age. Indeed, Government policies may 52 THE BUDGET FOR FISCAL YEAR 1981 be necessary to stimulate the rate of business investment sufficiently to insure that it matches a high savings rate. National defense.—Long-term considerations affect several major aspects of our defense force: technology, weapons procurement, and personnel. Beginning in 1969, outlays in constant dollars for national defense declined more or less steadily until 1977. Meanwhile, the Soviet Union was building its military strength. Therefore, the recent trend of growth in real U.S. defense expenditures is projected in this budget to continue through at least 1985. This kind of commitment is necessary not only to improve the ability of our Armed Forces to respond to potential aggression quickly, but also to invest in the development of technology and in the major weapons procurement that are essential to increase the relative strength of our defense over the long term. Moreover, the expected decline in the number of new entrants to the labor force over the next 15 years will be felt by the Armed Forces as well as by the civilian labor market. In 1977, males recruited into the Armed Forces represented approximately 20% of that year's cohort of 18-year-olds. Since the draft ended in 1973, the armed services have had to compete directly with civilian job opportunities for recruits. They have been relatively successful to date. If the Armed Forces are to maintain their present force levels, however, then either the percentage of each year's cohort of 18-year-old males recruited will have to increase substantially over time as the potential pool shrinks, or women will have to make up a much higher percentage of recruits. Alternatively, retention rates will have to be increased. Future budgets could be affected substantially if additional adjustments in military pay and benefits relative to private sector compensation become necessary. Research and development—The Federal budget financed over 60% of the Nation's research and development during the 1960's, but this share dropped to about 50% by the mid-1970's, contributing substantially to a marked decline in overall R. & D. spending as a percentage of GNP. (One reason for the substantial Federal role in research and development is the fact that benefits from R. & D. may be difficult for an individual firm to capture for itself; hence the private sector has little incentive to finance the basic research that is so vital to technological advance.) As U.S. preeminence in technology has declined, other developed nations have increased their research and development efforts substantially and are challenging U.S. leadership in high-technology exports. This budget reflects long-term measures to reverse the recent decline in the rate of technological innovation. Federal support for basic research has increased substantially in recent budgets, and is increased further under this budget's proposals. OUTLOOK 53 Since the benefits from research—especially basic research—may sometimes take decades to affect productivity, the accelerated research effort now getting underway could spur productivity growth. well into the 1990's. By then, increases in the size of the work force may be contributing relatively little to economic growth, so that high rates of productivity growth from new technology will be particularly welcome. Energy.—The most painfully apparent resource constraint facing us today is energy supplies. The various factors that have led to the present situation and the administration's long-range policies to improve it are explained in the energy section of Part 5 of the Budget Energy investments represent one of the most comprehensive long-range budget strategies the United States has undertaken. The administration's program seeks to reduce U.S. demand for imported oil significantly below current levels by 1990. The budget reflects a variety of measures that support this longterm objective by encouraging energy conservation, encouraging shifts from consumption of imported oil to consumption of domestically produced coal, supporting commercial production of synthetic oil and gas, and exploring the potential of alternatives to conventional power sources—such as solar power and fusion power. Under the proposals in this budget, nearly a quarter of all outlays for nondefense R. & D. would be devoted to energy. Housing.—As they reach the age at which they form their own households and seek homes of their own, the members of the maturing baby boom generation are contributing to the current strong demand for housing, and will continue to do so during the 1980's. Once the baby boom is housed, however, housing demand will slacken considerably, and residential construction will no longer compete so strongly with business investment for available savings. Over the 1980-85 period, annual increases in demand for housing due to demographic change are estimated to average more than 1.5 million units per year. This incremental demographic demand is projected to decline in the mid-1980's with the annual demand during the last half of the decade averaging fewer than 1.3 million units annually. During the 1990's, these demographic trends should cause an even larger drop in the incremental demand for housing. For the decade as a whole, the annual incremental demographic demand is projected to average fewer than 950,000 units, almost 40% below the demographic demands projected for the 1980-85 period. The changing population age structure during the next 20 years is also likely to contribute to a shift in housing demand pressures 54 THE BUDGET FOR FISCAL YEAR 1981 by type of unit demanded, from rental housing for younger households, to single family homes for middle-aged households. During the first half of the 1980's over one-third of the incremental demand pressure on housing will be due to increases in the numbers of young households with heads between 25 and 34 years of age. During the last half of the 1980's, this age group is projected to contribute only about 13% of the incremental demand for housing, and during the 1990,s, the change in demand from this age group is projected to turn negative. The administration has responded to these demographic pressures on housing by instituting reforms in mortgage credit markets that facilitate the flow of savings to meet the current strong demand for housing financing, and by focusing Federal expenditure subsidies on those lower income families living in substandard housing. Federal housing programs have sufficient flexibility to meet changing housing demand conditions. They support and supplement the dominant role of the private market in meeting housing demands. In fact, the private housing sector in the United States has proved highly responsive to changes in the demand for housing, except where institutional barriers or the lack of effective market demand from low-income households have arisen. The administration's reforms to financial institutions have allowed mortgage credit markets to compete more effectively for savings, particularly during the current period of high interest rates. This has reduced the flow of savings to nonhousing investments that would otherwise have occurred. As the demographic demand pressures on housing drop off substantially, the demand for mortage credit will likewise decline, freeing more of the available supply of savings for business capital investment. However, the probable decline of the housing construction industry after 1990 may by itself pose significant public policy issues. Retirement and health.—Although the baby boom generation promises to make tremendous contributions to our economy and standard of living during its prime working years, it is important to bear in mind that this generation, too, will eventually retire. The contributions of its members to the Nation's output will diminish and the burden of supporting their retirement benefits and meeting their growing needs for health care will fall upon a shrunken labor force. Much of that burden is likely to be transmitted through the Federal budget in the form of much higher outlays—and taxes-—for social security, medicare, and other programs. Under fairly conservative assumptions about future fertility and life expectancy in the United States, the ratio of elderly (retirement age) persons to persons of working age would approximately OUTLOOK 55 double between the years 2005 and 2035, reaching one person of retirement age for each two persons still of working age. The current ratio is about one to five. Since programs providing retirement and health care benefits for the elderly now make up nearly 38% of the Federal budget, this implies that there are likely to be major pressures on the budget to rise, as a percentage of GNP, during that period. The problem projected to arise during the 2005-2035 period is now distant in time, but should not be ignored. The Nation should begin to prepare for a transition a quarter of a century hence. Some of the actions that might alleviate the problem include encouraging later retirement age, developing more part-time jobs for those who wish to be semiretired, and examining what future benefit levels are realistic. The Federal Government has played a major role in financing the Nation's system of hospitals and the education of doctor's and other health professionals. It is now clear that while some geographic areas are underserved, the Nation as a whole has sufficient capacity in the health sector. As a result, financing of some aspects of health care—for example, the direct Federal financing of medical schools—has been curtailed. Moreover, as explained in the health section of Part 5 of the Budget, the administration proposes to limit Federal assistance for the training of health professionals to specific specialties where shortages are still projected. Another consideration in long-range health planning is to provide adequate facilities for the retired as that age group increases. Long-term care.—People 65 and older constitute the fastest growing segment of the U.S. population. Between 1980 and 2030, the elderly population will double absolutely and proportionately to total 55 million and 22% of the population. Within this overall growth, there will be a significant "aging of the aging." If present trends continue, the population 85 and older will triple by 2035. The changes in the size and composition of the elderly population suggest the need for greater attention to the problem of providing long-term care. Long-term care should not be thought of solely in terms of placing individuals in costly facilities, such as nursing homes, chronic disease hospitals, and psychiatric hospitals. Longterm care might be better addressed in terms of providing support to individuals who need continuing assistance in carrying out the tasks of daily living. This concept reflects a growing national emphasis on promoting the independent functioning of the disabled. Indeed, the majority of the elderly who might otherwise be institutionalized can and do live in the community with social, medical, income, and housing support—much of which is provided by their families and friends. 56 THE BUDGET FOR FISCAL YEAR 1981 The need for long-term care increases with age. Recent surveys suggest that 13% of the 65-74 year age group face some form of limitation in their ability to function without help. This incidence of impairment increases to 33% for the 75-84 year age group, and to 66% for those 85 and over.1 These data, combined with the Growth of Population A g e Groups, ( 9 5 0 - 2 0 5 0 inpending increase and change in the elderly population mentioned above, indicate that the number of elderly in need of long-term care will increase steadily, and more than double between 1980 and 2030. The 1981 budget reflects a number of actions to deal with long-term care needs better, both now and in the future. • Efforts are underway to fill gaps in our knowledge and to examine long-term care alternatives, in order to improve policies and programs in this area. Pilot projects will test ways of combining elements of long-term-care support available from organized programs, families, and friends, and will explore alternative ways of providing care in group housing arrangements. • Funding for research on senility, which affects approximately one-half of the nursing home population, will be increased. ' Estimates derived from 1977 National Nursing Home Survey and unpublished tabulations from 1977 Health Interview Survey. OUTLOOK 57 • Legislation will be submitted to the Congress that will allow States to provide community-based services, funded by medicaid, to people who are now eligible for medicaid assistance only if they enter a nursing home. Other legislation will eliminate the requirement that medicare beneficiaries must be hospitalized for 3 days before they can use home health benefits covered by hospital insurance. • Funds in the 1981 budget also will strengthen programs that encourage families, friends, and volunteers to help the elderly needing long-term care to remain in the community. The senior companion program will be expanded to include every State. Increased funding will be requested for community and inhome meals and social services for the aged, programs that often help those in need of long-term care. The longer range budget response.—Europe's population has a substantially more mature age structure than ours. In 1975 the median age in Western Europe was 33.1 years, 15% higher than for the United States. A larger percentage of the European population is elderly, and Europe is already experiencing the higher level of demand on pension, retirement, and health care systems that will come later in the United States. Not surprisingly, total Government taxes, at all levels, tend to be substantially higher as a percentage of national product than in the United States—generally more than 40% compared to a little over 30% in the United States, despite the fact that we spend proportionately more on defense. This larger role of government in Europe may well be due in large part to their more elderly populations. The European experience in this regard should be examined for the light it may shed on how U.S. society can meet future problems. It suggests that the pressures to increase the proportion of GNP allocated to the public sector will not decrease in the foreseeable future. The Nation will need to face increasingly difficult choices if we are to succeed in avoiding the general trend experienced by most other mature industrialized countries of the free world—that of steady growth of the public sector. Not all of the issues discussed here can or even should be reflected in the 1981 budget. Yet to a considerable degree this budget does reflect a growing consciousness of long-term considerations. • In education, for example, programs are targeted to specific areas of concern, especially disadvantaged youths. This emphasis recognizes that although demographic trends suggest that there is less overall need to increase funds for education, there remain specific needs of national concern. • The budget emphasizes a long-range commitment to building a stronger national defense force. 58 THE BUDGET FOR FISCAL YEAR 1981 • The budget recognizes the need to shift emphasis in health programs and to promote appropriate long-term care for the elderly. • The budget provides long-term commitments for additional low-income housing. • The need to increase our investment in basic research in real terms is reflected in the budget. • Finally, the budget provides the policy framework and the resources for long-term energy self-sufficiency. In these and other ways, the 1981 budget reflects the administration's commitment to the Nation's future. PART 4 BUDGET RECEIPTS 59 BUDGET RECEIPTS This section of the budget describes the major sources of budget receipts for 1979 to 1983 and discusses the legislative proposals and administrative actions affecting them. Detailed estimates of budget receipts by source are shown in table 10 of Part 9. The economic assumptions underlying the estimates are presented in Part 3 together with estimates of receipts for 1984-85 and estimates of receipts at high employment. Part 6 contains an analysis of the difference between actual receipts for 1979 and the budget estimates for 1979 made 2 years ago. In addition, Part 7 explains the conceptual basis for classifying certain amounts collected by the Federal Government as budget receipts and other amounts as offsetting collections. SUMMARY Total budget receipts in 1981 are estimated to be $600.0 billion, an increase of $76.2 billion from the $523.8 billion estimated for 1980. Receipts in 1982 and 1983 are estimated to be $691.1 billion and $798.8 billion, respectively. These estimates include the effects of: • increases in social security taxes scheduled under current law; • the proposed windfall profit tax and energy credits that are part of the administration's energy program; • administrative actions and proposed legislative changes to collect taxes closer to the time when liabilities occur; and • other receipts proposals currently being made. The estimates of receipts for 1982 and 1983 are based on current tax law as modified by the tax proposals and administrative actions in this budget. The timing of tax reductions in future years will depend on the state of the economy, especially on progress in reducing inflation. Composition of budget receipts.—The Federal tax system relies predominantly on income and payroll taxes. In 1981: • Income taxes paid by individuals and corporations are estimated at $274.4 billion and $71.6 billion, respectively. Combined, these sources account for 58% of estimated budget receipts. • Social insurance taxes and contributions—composed largely of payroll taxes levied on wages and salaries, most of which are 60 61 BUDGET RECEIPTS paid equally by employers and employees—will yield an estimated $187.4 billion, 31% of the total. • Excise taxes imposed on selected products, services, and activities are expected to provide $40.2 billion, 7% of the total. • Estate and gift taxes, customs duties, and miscellaneous receipts are estimated at $26.4 billion, the remaining 4% of the total. Under the tax policy assumptions presented in this budget, the income tax share of total receipts is projected to rise to 59% by 1983, 2 percentage points more than projected for 1981. Social insurance taxes are projected to fall as a share of total receipts from 31% in 1981 to 30% in 1983. The projected share of all other receipts declines by 1 percentage point between 1981 and 1983. BUDGET RECEIPTS BY SOURCE (In billions of dollars) 1979 actual Source Individual income taxes Corporation income taxes Social insurance taxes and contributions Excise taxes Estate and gift taxes Customs duties Miscellaneous receipts Total, budget receipts 1980 estimate 1981 estimate 1982 estimate 1983 estimate 217.8 65.7 141.6 18.7 5.4 7.4 9.2 238.7 72.3 162.2 26.3 5.8 7.6 10.9 274.4 71.6 187.4 40.2 5.9 8.4 12.1 318.7 80.6 215.9 48.0 6.4 8.6 13.0 381.4 91.8 243.4 51.7 7.1 9.2 14.2 465.9 523.8 600.0 691.1 798.8 RECEIPTS PROPOSALS Energy program.—On April 5, 1979, the President announced the phased decontrol of domestic oil prices beginning on June 1, 1979, and ending with the expiration of price control authority on September 30, 1981. As part of the decontrol program, a windfall profit tax on domestic producers of crude oil was proposed. Several energy tax credits and a change in the existing foreign tax credit on oil and gas extraction were also proposed. These proposals, which are described in greater detail below, are estimated to result in a net increase in receipts of $6.2 billion in 1980, $14.4 billion in 1981, $18.4 billion in 1982, and $19.6 billion in 1983. Windfall profit to.—Higher OPEC prices and the phased decontrol of domestic oil prices will result in high profits for domestic oil producers. Fairness requires that some of these windfall profits be returned to the Nation as a whole, to be used for public purposes including the reduction of oil imports, conservation of energy, and mitigation of the impact of higher energy prices on low-income Americans. The President, therefore, proposed a windfall profit tax to become effective January 1, 1980. The proposed tax base is equal 62 THE BUDGET FOR FISCAL YEAR 1981 to the amount a producer receives for domestically produced crude oil in excess of a base price and any State severance taxes attributed to the windfall. The tax rate generally is 60%, although it varies in certain cases, depending on the type of oil. The gross windfall profit tax is estimated to increase excise tax receipts by $7.7 billion in 1980, $20.9 billion in 1981, $28.4 billion in 1982, and $31.5 billion in 1983. Because the proposed windfall profit tax is an excise tax, it is deductible for income tax purposes. The administration has proposed, however, that gross income for purposes of calculating percentage depletion be reduced by the windfall profit amount as determined before any severance tax adjustment. The net gain from the windfall profit tax proposal—the gross windfall profit tax less the reduction in income taxes due to the deductibility of the tax plus the gain from the denial of percentage depletion—is $5.5 billion in 1980, $13.9 billion in 1981, $18.2 billion in 1982, and $19.5 billion in 1983. Each house of Congress has passed its own version of a windfall profit tax; differences between the two are being resolved by a Conference Committee. It is anticipated that a windfall profit tax will be enacted early in 1980. The windfall profit tax proposal presented in this budget follows generally the administration's position presented to the Senate Finance Committee. Energy tax credits.—The proposed energy program includes several income tax credits to stimulate the conservation and production of energy. These credits are estimated to reduce receipts by $0.1 billion in 1980, $0.3 billion in 1981, $0.4 billion in 1982, and $0.6 billion in 1983. Each credit is described briefly below: • Tax credit for commercial passive solar construction.—A tax credit of up to $10,000 per building would be provided to builders who employ passive solar technology in the construction of new buildings. The amount of the credit would be $20 per million Btu that were saved in excess of a specified level above the Building Energy Performance Standard baseline. • Tax credit for residential passive solar construction.—A tax credit of up to $2,000 per unit would be provided to builders who use passive solar technology in new residential units. The amount of the credit would be based on the amount of energy conserved as a result of the passive solar design. • Tax credit for process heat.—The cost of solar thermal energy equipment used to produce process heat in agricultural and industrial applications would be eligible for an additional investment tax credit of 15%. • Gasohol. Fuels that are at least 10% alcohol are currently exempt from the 4-cent-per-gallon Federal excise tax on gasoline and diesel fuels. This exemption would be extended to BUDGET RECEIPTS 63 January 1, 2000.1 In cases where alcohol is used as a fuel that is suitable for use in internal combustion engines, but is ineligible for the excise tax exemption, a taxable tax credit of up to 40 cents per gallon would be provided. • Woodburning stoves.—The cost of purchasing a qualified woodburning stove would be eligible for a tax credit of 15%, up to a maximum of $300. • Oil shale tax credit.—A $3-per-barrel tax credit would be provided to domestic producers of shale oil. The credit would phase out as the price of imported oil, adjusted for inflation, increases from $22.00 to $27.56 per barrel. • Unconventional natural gas tax credit.—Unconventional natural gas derived from tight sands, Devonian shale, coal seams, and geopressured brine would be eligible for a production tax credit of $0.50 per thousand cubic feet. Foreign tax credit on oil and gas extraction.—Under current law, foreign income taxes may be offset dollar for dollar against U.S. income taxes. These foreign income taxes may be used, in general, only to offset U.S. income taxes on foreign source income. The administration is proposing legislation to assure that foreign taxes on income from oil and gas extraction be used to offset U.S. taxes only on that income, rather than U.S. taxes on all foreign source income. This proposal is estimated to increase receipts by $0.9 billion in 1980, and $0.7 billion in 1981, 1982, and 1983. Cash management.—The receipts estimates reflect several initiatives to require taxpayers to make income tax payments closer to the time when tax liabilities are incurred, to require employers to deposit taxes withheld from employees on a more timely basis, and to accelerate the payment schedule of customs duties and tobacco excise taxes. It is estimated that these cash management initiatives, which are described in more detail below, will increase receipts by $4.5 billion in 1981, $5.6 billion in 1982, and $2.2 billion in 1983. Employer deposits of taxes.—Under current law, the times at which withheld income and payroll taxes and the employer's share of payroll taxes must be remitted to the Treasury depend on the amount of such taxes withheld by the employer. The larger the accumulated taxes, the sooner they must be paid. The proposed changes, which can be accomplished by administrative action, will accelerate the deposits by large employers. At the same time, the 1 This exemption reduces the receipts of the Highway trust fund. 64 THE BUDGET FOR FISCAL YEAR 1981 changes will give relief to about 550,000 very small employers (quarterly withheld taxes of less than $1,000), who will pay their entire liability in one quarterly payment; and the frequency of required deposits will be reduced for an additional 980,000 employers. Employers with quarterly withheld taxes of $1,000 to $13,000 will be required to make only one deposit per month. These changes, which will be phased in during calendar years 1981 and 1982, are expected to increase receipts by $2.6 billion in 1981, $1,8 billion in 1982, and $0.6 billion in 1983. Individuals1 payments of estimated taxes.—Under current law, individuals whose tax liabilities exceed withheld taxes by $100 or more are required to make estimated tax payments 4 times a year. Because these quarterly payments are only estimated, a substantial deviation is permitted before penalties are applied for underpayment. Generally, there is no penalty so long as estimated tax payments plus withheld taxes exceed 80% of tax liabilities shown on the tax return. Taxpayers who make estimated tax payments pay their taxes substantially later than they would if their liabilities were withheld. In addition, such taxpayers need to pay only 80% of their liabilities in the year in which they accrue. To reduce the advantages of paying taxes through estimated payments and at the same time avoid burdening the taxpayer with paying small amounts of estimated tax, the following legislative changes are proposed: • Increase the minimum percentage of liabilities to be met by withheld and. estimated payments from 80 to 85%. • Increase from $100 to $300 the amount by which liabilities must exceed withheld payments before estimated payments are required. • Eliminate penalties for underestimation of tax when estimated tax payments are not required. These proposed changes are estimated to increase receipts by $0.1 billion in 1981, $0.3 billion in 1982, and $0.1 billion in 1983. Corporation income tax payments.—Corporations are generally required to pay 80% of their corporate income tax liability through estimated tax payments. For corporations that keep accounts on a calendar year basis, the estimated tax payments are due on the fifteenth of April, June, September, and December. The remainder of the tax liability is due in two equal installments after the close of the year, payable on March 15 and June 15. The required level of estimated tax payments has several exceptions. A major one is that corporations can make estimated payments on the basis of the previous year's tax liability. Thus, a corporation with a loss in the preceding year need not pay any estimated tax. BUDGET RECEIPTS 65 The receipts estimates for 1981 and beyond reflect several proposed changes to require tax payments closer to the time the liabilities occur and to make tax payments conform more closely to actual liabilities. These proposed changes, which require legislation, include: • Raising the required level of estimated tax payments from 80 to 85%. • Requiring corporations with calendar year accounting to pay the liability remaining at the end of the year in a single payment due on March 15. • Modifying the provision that allows corporations to make estimated payments on the basis of the prior year's tax liability. Large corporations will be required to make estimated payments that are at least 60% of the current year liability, if that amount exceeds the prior year liability. In addition, to meet better the cash needs of the Treasury, which are heaviest at the beginning of each month, it is proposed that estimated corporate tax payments be made on the first of the month rather than the 15th. This will be achieved by accelerating two of the estimated payments by one-half month and by delaying the other two by one-half month. These changes will be phased in during calendar years 1981 and 1982 and are estimated to add $1.4 billion to receipts in 1981, $3.4 billion in 1982, and $1.4 billion in 1983. Other cash management initiatives.—The administration is also proposing to accelerate the collections of customs duties and tobacco excise taxes beginning in 1981. Importers and brokers currently have 10 days to submit customs duties after they have been collected. The administration is reviewing several options to reduce this delay. The collection of tobacco excise taxes from large manufacturers will also be accelerated. Currently, these taxes are due within 15 days after each semimonthly collection period. The revised regulations will require payment within 3 days after each weekly collection period. These changes, which can be accomplished by administrative action, will increase receipts by $0.4 billion in 1981, but will have no significant effect on receipts in subsequent years. Restrictions on tax-exempt housing bonds.—State and local governments use some of the proceeds from tax-exempt borrowing to provide mortgage funds for private housing. The tax exemption of interest on State and local securities makes it possible to provide such funds at interest rates well below the rates for private mortgages. At first, tax-exempt housing bonds were used mainly to assist low-income, multifamily housing; recently, there has been a dramatic increase in the use of such bonds for owner-occupied 66 THE BUDGET FOR FISCAL YEAR 1981 housing, including housing purchased by middle and upper income families. To halt this abuse of the tax-exempt borrowing privilege and to stem a huge potential loss in tax revenues, the administration supports legislation to ban the use of tax-exempt bonds for owneroccupied housing. The ban would apply to such bonds issued after April 25, 1979, with exceptions allowed for bonds in process as of that date. The administration is also proposing to restrict the use of tax-exempt bonds for multifamily housing to projects in which at least 20% of the residents qualify as low-income under present HUD definitions. This proposal is estimated to increase receipts by $0.1 billion in 1980, $0.8 billion in 1981, $2.5 billion in 1982, and $5.2 billion in 1983. Other receipts proposals•—The administration is proposing a number of other actions to improve resource allocation and the overall efficiency and equity of the tax structure. Tax distinction between employees and independent contractors.— Under current law, a worker classified as an "independent contractor" rather than as an "employee" receives favorable withholding and employment tax treatment: • An employer is required to withhold income and social security taxes on wages paid to an employee. Withholding of these taxes is not required on payments made to an independent contractor. Thus, tax compliance by independent contractors is extremely poor. • The combined employer-employee social security tax rate (12.26% in 1980 and 13.3% in 1981) is higher than the selfemployed rate paid by independent contractors (8.1% in 1980 and 9.3% in 1981). There is no clear method to distinguish between employees and independent contractors under current law. As a result, this unclear distinction has become a frequent source of controversy between taxpayers and the Internal Revenue Service and has resulted in substantial revenue losses to the Treasury each year. To prevent tax noncompliance by independent contractors, the administration is proposing that effective January 1, 1981, 10% be withheld from compensation for services paid to certain independent contractors. It is estimated that this proposal would increase revenues by $0.6 billion in 1981, $0.6 billion in 1982, and $0.7 billion in 1983. Railroad retirement taxes— The budget estimates reflect proposed legislation to increase railroad retirement payroll taxes to alleviate funding problems of the Railroad Retirement trust fund. BUDGET RECEIPTS 67 The largest part of the increase in receipts results from the elimination of the taxable earnings maximum (currently $1,850 per month) on the employer portion of the tax. This legislation is proposed to become effective January 1, 1981, and would increase receipts by $0.3 billion in each of the years 1981 through 1983. Airport and airway trust fund taxes.—These taxes are generally scheduled to expire on June 30, 1980. Legislation has been proposed to extend the current freight waybill and passenger ticket taxes, and certain other taxes, at their present rates. The legislation also changes the current 7 cents per gallon tax on aviation fuel to an ad valorem tax of 10% of the price of aviation fuel effective July 1, 1980. A 6% tax on new aircraft and avionics is also being proposed to become effective October 1, 1980. In comparison to extending the current tax rates beyond their June 30, 1980 expiration date, these proposals are estimated to increase receipts by a relatively small amount in 1980, $0.2 billion in 1981, $0.3 billion in 1982, and $0.3 billion in 1983. Employer social security tax on tips.—Under current law, employers pay social security taxes on a limited part of the cash tips received by their employees, whereas employees pay social security taxes on all cash tips. Legislation is being proposed, to become effective January 1, 1981, to require employer social security tax payments on all tips now subject to employee social security taxes. This legislation is expected to increase receipts by a small amount beginning in 1981. Oil and hazardous substance cleanup.—The administration is proposing legislation to establish a fund to assure adequate and timely cleanup of oil and hazardous substances which significantly threaten public health and the environment. This new fund, which will replace several existing pollution control funds, will also be used to address the problems of uncontrolled chemical dumpsites which contain hazardous wastes threatening public health and the environment. The fund will be financed primarily by fees paid by industry. This legislation, proposed to become effective October 1, 1980, is estimated to increase receipts by $0.2 billion in 1981, $0.3 billion in 1982, and $0.4 billion in 1983. Reduction in premiums of uninsured individuals.—Individuals not insured under social security may obtain supplementary medical insurance (medicare) coverage by paying a monthly premium based on hospital costs of the previous 2 years. In an effort to restrain inflation in health care costs, the administration is proposing hospital cost-containment legislation to limit increases in revenues for inpatient care. This legislation, proposed to become effec- 68 THE BUDGET FOR FISCAL YEAR 1981 tive October 1, 1980, will have no effect on receipts in 1981 and 1982 and an insignificant impact in 1983. Withholding tax on interest paid to foreigners.—Current law requires a withholding tax of 30% on interest (and other payments, such as dividends, rents, royalties, etc.) paid to nonresident foreigners. However, because of numerous statutory and treaty exemptions, collections are very small. The administration proposes to eliminate withholding on all portfolio interest paid to nonresident foreigners. This is expected to encourage foreign investment in the United States, help the balance of payments and the value of the dollar, and spur domestic capital formation. It is estimated that this proposal will reduce receipts by relatively small amounts through 1983. Taxation of foreign investment in U.S. real estate.—Most nonresident foreign investors in U.S. real estate are able to avoid capital gains taxation when they sell their investments. This reduction in receipts results not from any specific exemption, but rather from opportunities for tax avoidance inherent in current law. The administration proposes taxing all capital gains realized by foreign investors on real estate effective January 1, 1980. A withholding mechanism to aid the enforcement is also proposed. The proposal is expected to increase receipts by relatively small amounts through 1982, and by $0.1 billion in 1983. Tax-exempt public housing bonds.—Local housing authorities have traditionally borrowed from the public on a tax-exempt basis to obtain financing for the construction of public housing. The Federal Government then makes annual payments to amortize the debt. The administration proposes that beginning in 1980 a portion of short-term, tax-exempt notes now sold by local housing authorities directly to the public would be converted into long-term bonds to be purchased by the Federal Financing Bank (FFB), an entity of the Treasury Department. To pay for these purchases, taxable Treasury debt instruments would be issued. The interest differential between the taxable rate and the tax-exempt rate would be paid to the FFB by the Department of Housing and Urban Development. This proposal can be accomplished by administrative action. Historic preservation.—Under the Tax Reform Act of 1976, expenditures to rehabilitate structures certified by the Department of the Interior to be historic became eligible for special accelerated methods of depreciation; the demolition of such structures became subject to special tax disincentives. These provisions are generally scheduled to expire on June 30, 1981, and December 31, 1980, respectively. 69 BUDGET RECEIPTS Because tax returns on projects using these tax incentives have been filed relatively recently, information has not been available for assessing the impact, usefulness, and efficiency of these provisions. With data now becoming available, the administration will undertake an evaluation of the operation of these provisions during the coming year. The administration, therefore, is proposing a 1year extension of these provisions, which is estimated to reduce receipts by relatively small amounts through 1983. EFFECT OF ADMINISTRATIVE ACTIONS AND PROPOSED LEGISLATION 1 (In billions of dollars) 1980 Individual income taxes: Cash management initiatives Energy program * Tax-exempt housing bonds Other Subtotal, individuals Corporation income taxes: Cash management initiatives Energy program 3 Tax-exempt housing bonds Other Subtotal, corporations 1981 1.5 -1.7 0.5 0.3 -0.4 1.1 0.7 -1.1 0.1 1.4 -5.3 0.7 0.1 3.4 —8.3 2.0 0.1 1.4 —9.8 4.1 0.1 -3.2 -2.9 -4.2 0.9 0.3 0.2 0.6 0.3 0.3 0.2 0.3 0.3 1.4 1.2 0.8 20.9 0.2 0.2 0.2 28.4 0.3 0.3 31.5 0.3 0.4 * * 21.5 29.0 32.2 * * * * • -1.0 Subtotal, social insurance Subtotal, excise taxes Other.Cash management initiatives Other Subtotal, other Total 1983 1.8 -1.1 0.2 0.3 -0.4 Social insurance taxes and contributions: Cash management initiatives Railroad retirement tax increase Other Excise taxes: Windfall profit tax Airport and airway trust fund taxes * Oil and hazardous substance cleanup Cash management initiatives Other 1982 7.7 * 0.5 -2.0 1.1 0.4 0.1 .. 7.8 0.2 * » * 0.2 6.4 21.0 _* * 28.0 * 28.8 • 5 0 million or less. 1 These estimates are based on the direct effect only of legislative changes at a given level of economic activity. Induced effects are taken into account (or forecasting incomes, however, and in this way affect the receipts estimates by major source and in total. * These reductions art in large part due to the deduct&iity of the windfall profit tax in determining income tax liability. 3 These estimates are for increases in airport and airway tax receipts over and above those that would result from extending the current tax rates beyond their June 30, 19S0 expiratw date The extension of current tax rates would add $0.1 billion to receipts in 1980, $0.9 billion in 1981, $0.9 tuition in 1982, and $1.0 billion in 1983. 70 THE BUDGET FOR FISCAL YEAR 1981 CHANGES IN BUDGET RECEIPTS Budget receipts are estimated to rise by $57.9 billion in 1980 and $76,2 billion in 1981. The year-to-year changes can be divided between the part due to growth in the tax base and the part due to revisions in the tax structure. Under the tax rates and structure in effect on January 1, 1978, receipts would have risen by $58.4 billion in 1980 and $50.8 billion in 1981. Thus, the combined effect of administrative actions and enacted and proposed tax law changes, which is shown in the accompanying table, decreases the growth in receipts by $0.5 billion in 1980 and increases the growth in receipts by $25.4 billion in 1981- The corresponding increases for 1982 and 1983 are $17.1 billion and $9.0 billion, respectively. 1980 Growth in receipts (in billions of dollars): Under existing law and administrative actions and proposed legislation Under tax rates and structure in effect Jan. 1 , 1 9 7 8 Difference 1981 1982 1983 57.9 58.4 76.2 508 91.1 RO 107.7 98J -.5 25.4 17.1 9.0 71 BUDGET RECEIPTS CHANGES IN BUDGET RECEIPTS {In billions of dollars) 1979 Receipts under tax rates and structure in effect January 1, 1978 1 Administrative actions: Acceleration of State and local deposits of social security taxes effective July 1, 1980 Sugar import proclamation Waiver of import duties and fees on crude oil and petroleum products 2 Enacted legislative changes: Revenue Act of 1978 Energy Tax Act of 1978 Foreign Earned Income Act of 1978 Social security taxable earnings base increases: * 5 $17,700 to $22,900 effective Jan. 1, 197 9 $22,900 to $25,900 effective Jan. 1, 198 0 $25,900 to $29,700 effective Jan. 1, 198 1 $29,700 to $32,400 effective Jan. 1, 198 2 $32,400 to $35,400 effective Jan. 1, 198 3 Social security tax rate increases:4 12.1% to 12.26% effective Jan. 1, 1979 12.26% to 13.3% effective Jan. 1, 1981 13.3% to 13.4% effective Jan. 1 , 1 9 8 2 Increase in SMI (medicare) premium Other Total, receipts under existing legislation Proposed changes: Energy program Cash management initiative Tax-exempt mortgage bonds Other Total, receipts under existing and proposed legislation4 1980 1981 1982 1983 467.9 526.3 577.1 651.1 749.8 * 2.2 .1 .4 .1 .3 .1 .2 .1 - .3 -.6 -4.4 -1.0 —.6 -21.7 -.9 -.3 -25.1 -1.1 -.3 -29.0 -1.2 -.3 -33.1 -1.1 -.3 3.0 9.7 11.8 14.4 17.5 1.3 4.3 5.6 7.2 1.5 5.0 6.7 1.1 3.6 1.3 1.1 .2 -O. 465.9 465.9 1.7 1.9 2.1 2.4 9.2 16.5 1.5 1.6 -3.9 .5 -^9 .8 -1.7 14.6 1.0 1.2 —2.9 517.4 579.0 663.1 770.0 6.2 .1 .1 14.4 4.5 .8 1.3 18.4 5.6 2.5 1.5 19.6 2.2 5.2 1.8 523.8 600.0 691.1 798.8 > These figures assume a social security taxable earnings base of J17,700. •Pursuant to Presidential Proclamation No. 4655, fees and customs duties on imported crude oil and petroleum products may be waived by the Secretary of Energy through June 30,1980. For budget purposes, it is assumed that such fees and duties will be waived until that date. As of the time this budget was completed, no determination had been made as to whether the authority granted under Proclamation No. 4655 would be extended beyond June 30, 1980, and this budget includes for periods beyond that date revenues received from such import fees and customs duties. «If the taxaite eanwgs base were not changed to reflect increased earnings, the effective social security tax rate on earnings would fall. The amounts included in legisiatrve changes that can be attributed to keeping taxes and average earnings in the same relationship that existed in 1978 are: S0.9 billion in 1979, *4.1 Mian m 1980. J8.6 billion in 1981, 515.2 billion in 1982, and $23.9 billion in 1983. «These estimates include both the direct and indirect effects of administrative action and legislative changes, •Technical note: When the tax rate and the taxaNe earnings base increase at the same time, dividing up the total effect on receipts is arbitrary to some small extent because of an interaction effect. The increase in receipts due to this interaction effect is attributed to the rate and base changes in proportion to the increases in receipts than would occur if the rate and base were each changed separately. 72 THE BUDGET FOR FISCAL YEAR 1981 RECEIPTS BY SOURCE Individual income taxes.—Individual income tax receipts are estimated at $238.7 billion in 1980 and $274.4 billion in 1981, an increase of $35.6 billion. The major proposal affecting individual income taxes in 1981 is the cash management initiative, which is estimated to increase receipts by $1.8 billion. The proposed energy program reduces individual income tax receipts by an estimated $0.4 billion in 1980 and $1.1 billion in 1981. Individual income taxes in 1982 and 1983 are projected at $318.7 billion and $381.4 billion, respectively. These figures reflect a rise in the average tax rate on personal income as inflation and real growth move taxpayers into higher tax brackets. The administration is extremely concerned about the significant rise in tax burdens implied in these estimates, and is committed to reducing these burdens as soon as economic conditions allow. However, as discussed earlier, the timing, form, and size of any future legislated tax reductions depends on the future performance of the economy, especially progress in reducing inflation. Corporation income taxes.—Corporation income tax receipts are estimated at $72.3 billion in 1980 and $71.6 billion in 1981. The proposed energy program, primarily the deductibility of the proposed windfall profit tax, reduces estimated receipts by $1.1 billion Budget Receipts: 1971-1983 BUDGET RECEIPTS 73 in 1980 and $5.3 billion in 1981. These estimates reflect other proposed changes, which add $0.1 billion to receipts in 1980 and $2.2 billion in 1981. Corporation income tax receipts in 1982 and 1983 are estimated at $80.6 billion and $91.8 billion, respectively. These estimates reflect reductions of $8.3 billion in 1982 and $9.8 billion in 1983 due to the proposed energy program. Other proposed changes, primarily the cash management initiatives and the restrictions on tax-exempt housing bonds, are estimated to increase receipts by $5.4 billion in 1982 and $5.6 billion in 1983. Social insurance taxes and contributions.—This category includes social security and railroad retirement taxes, unemployment insurance taxes and deposits, Federal employee retirement contributions, and premium payments for supplementary medical insurance. Receipts from this source are expected to be $162.2 billion in 1980 and $187.4 billion in 1981. These figures reflect the scheduled increase in the combined employer-employee social security tax rate from 12.26 to 13.3% on January 1, 1981, and annual increases in the social security taxable earnings base from $22,900 in 1979 to $25,900 in 1980 and $29,700 in 1981. The 1980 estimate also includes $2.2 billion from an administrative action announced in November 1978 to accelerate State and local deposits of social security taxes effective July 1, 1980. The 1981 estimate reflects an increase of $0.9 billion from the cash management proposals. The estimates for 1982 and 1983 are $215.9 billion and $243.4 billion, respectively. These estimates reflect a scheduled rise in the combined employer-employee social security tax rate—from 13.3 to 13.4% on January 1, 1982—and annual increases in the taxable earnings base. Excise taxes.—Excise taxes are levied on a variety of products, services, and activities. Receipts from these taxes are estimated at $26.3 billion in 1980 and $40.2 billion in 1981. These estimates reflect the proposed windfall profit tax, which is estimated to increase receipts by $7.7 billion in 1980 and $20.9 billion in 1981. These estimates also reflect the continued phase-out of the telephone excise tax that is scheduled under current law, and proposed legislation to continue in a modified form the airport and airway taxes that are currently scheduled to expire on June 30, 1980. The 1981 estimate includes an additional $30 million attributable to enactment of the Inland Waterways Revenue Act of 1978, which levied a tax on liquid fuel used in vessels engaged in commercial waterway transportation, effective October 1, 1980. 74 THE BUDGET FOR FISCAL YEAR 1981 The estimates for 1982 and 1983 are $48.0 billion and $51.7 billion, respectively. These estimates include $28.4 billion from the proposed windfall profit tax in 1982 and $31.5 billion in 1983. Other receipts.—Estate and gift taxes, customs duties, and miscellaneous receipts (the largest of which are deposits of earnings by the Federal Reserve System) are estimated to total $24.3 billion in 1980, $26.4 billion in 1981, $28.0 billion in 1982, and $30.5 billion in 1983. Proprietary receipts.—In addition to budget receipts, the Government receives significant proprietary income from the public. This income is derived from various market-oriented activities—such as interest, rents, royalties, and the sale of Government property, products, and services. Since this income arises from business-type transactions rather than from taxation, it is treated as an offset to related outlays and budget authority rather than as budget receipts. Proprietary receipts from the public are shown in table 11 of Part 9. PART 5 MEETING NATIONAL NEEDS: THE FEDERAL PROGRAM BY FUNCTION 75 INTRODUCTION National needs and the functional classification.—This section discusses the budget according to national needs, agency missions, and major programs. National needs are grouped in 16 broad areas that provide a coherent and comprehensive basis for analyzing and understanding the budget. Three additional categories—interest, allowances, and undistributed offsetting receipts—do not address specific national needs but are included in order to cover the entire budget. The budget resources devoted to meeting national needs are classified by budget functions so that budget authority and outlays of budget and off-budget Federal entities, loan guarantees, and tax expenditures can all be grouped according to the national needs being addressed. To the extent feasible, these groupings are made without regard to agency or organizational distinctions. Each Federal activity is classified in the function that defines its most important purpose, even though many activities serve more than one purpose. This is necessary so that the sum of the functional categories equals the budget totals. They are also the categories used by the Congress in the concurrent resolutions on the budget. Multiyear budget presentation.—This section of the budget continues to include detailed data on budget authority and outlays for 2 years beyond the budget year. This reflects the 3-year planning system adopted by the administration. The system provides information on a regular basis on the longer term effect of current budget decisions. It also provides the means for phasing in, or phasing out, programs on a systematic basis. Ten years: 1971-81.—During the 10-year span ending with the 1981 budget, total outlays are estimated to have nearly tripled, going from $211 billion in 1971 to $616 billion in 1981. A very large portion of this increase was the result of inflation, but budget outlays in constant prices are expected to be nearly 30% higher in 1981 than a decade earlier, while prices paid are expected to be around 125% higher. Within the total increase in spending there were marked disparities. For example, energy programs in 1981 are estimated to be nearly seven times the 1971 level. Health spending will quadruple, and income security (which includes the social security program) will also quadruple. Because of their higher than average growth from high base levels, total spending on health and income security together is expected to equal 46% of budget out76 77 INTRODUCTION lays in 1981; a decade earlier they accounted for 33% of the total. Other functions whose spending more than triples include administration of justice; natural resources and environment; education, training, employment, and social services; and community and regional development. In contrast, defense outlays are up only 93% between 1971 and 1981, and declined by 10% after adjustment for inflation. General science, space, and technology spending is up only 54% in current prices—reflecting the phaseout of the manned space program—while outlays for the agriculture and the commerce and housing credit functions are estimated to be lower in 1981 than in 1971. Major budget trends.—In considering how the budget has changed over the years, it is helpful to aggregate function totals into larger clusters in order to observe broad trends in Federal spending. These aggregations are made more meaningful when compared with the size of the total economy (as measured by the GNP), as is done in the following chart. The tables on the following 2 pages show budget outlays by larger cluster and by the functions comprising each larger cluster at 5-year intervals from 1956 to 1976, and for each of the years 1979 through 1983. Tables showing budget authority and outlays for each major function, subfunction, and basic program are included in each of the subsequent sections Budget Outlays as a Percent of G N P Percent Percent THE BUDGET FOR FISCAL YEAR 1981 78 BUDGET OUTLAYS BY LARGER CLUSTER AND BY FUNCTION, 1956-76 (In billions of dollars) Actual 1956 National defense1 Human resources: Income security Social security Other Health Education, training, employment, and social services Veterans benefits and services Subtotal, human resources Net interest: Interest Interest received by trust funds Subtotal, net interest All other International affairs General science, space, and technology Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Administration of justice General government General purpose fiscal assistance Undistributed offsetting receipts (except interest) Subtotal, all other Total budget outlays 1961 1966 1971 1976 39.7 46.6 54.9 75.8 89.4 9.9 (5.5) (4.4) ,4 21.4 (12.2) (9.3) .9 28.9 (20.2) (8.7) 2.6 55.4 (35.2) (20.2) 14.7 127.4 (72.7) (54.7) 33.4 .6 4.9 1.1 5.7 4.4 5.9 9.8 9.8 18.7 18.4 15.7 29.1 41.8 89.8 198.0 6.3 -1.2 8.1 -1.4 11.3 -1.9 19.6 -4.8 34.5 -7.8 5.1 6.7 9.4 14.8 26.7 2.4 .1 .2 .9 3.5 .5 1.4 .1 .3 .7 .1 3.2 1.0 .5 1.8 2.6 1.2 4.0 .3 .4 1.2 .2 5.6 6.7 .6 2.7 2.4 3.2 5.7 1.1 .6 1.4 .3 4.1 4.2 1.0 3.9 4.3 2.4 8.0 2.9 1.3 2.0 .5 5.6 4.4 3.1 8.1 2.5 3.8 13.4 4.8 3.3 2.9 7.2 -.3 -1.0 -1.7 -3.7 -6.9 9.9 15.3 28.6 31.0 52.3 134.7 211.4 366.4 70.5 97.8 * The national defense function. of this part of the budget. These tables include data for the last actual year (1979), the current year (1980), and the multiyear budget planning period (1981-83). In addition, tables showing projected budget authority and outlays by agency and major function for the years 1984 and 1985 appear in Part 3 (Economic Assumptions and the Long-Range Outlook) of this document. Data underlying the chart show that: • Federal spending relative to the total economy rose significantly throughout most of this period. In 1966, Federal budget outlays were equal to 18.7% of the GNP; the total rose to 20.7% in 1971 and 22.6% in 1976. Under the President's budget program, this trend is being halted. Total budget outlays are estimated at 22.3% of GNP for both 1980 and 1981. 79 INTRODUCTION BUDGET OUTLAYS BY LARGER CLUSTER AND BY FUNCTION, 1979-83 (In billions of dollars) Estimate Actual 1979 National defense 1 Human resources: Income security Soci3l security Other Health Education, training, employment, and social services Veterans benefits and services Subtotal, human resources Net interest: Interest Interest received by trust funds Subtotal, net interest All other International affairs General science, space, and technology Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Administration of justice General government General purpose fiscal assistance Allowances Undistributed offsetting receipts (except interest) Subtotal, all other Total budget outlays 1980 1981 1982 1983 117.7 130.4 146.2 165.5 185.9 160.2 (102.6) (57.6) 49.6 190.9 (117.9) (73.0) 56.6 220.0 (136.9) (83.1) 62.4 241.7 (154.3) (87.4) 70.8 264.0 (172.0) (92.0) 79.9 29.7 19.9 30.7 20.8 32.0 21.7 35.0 23.2 37.7 24.6 259.4 298.9 336.2 370.7 406.3 52.6 -9.9 63.3 -11.5 67.2 -13.0 68.0 -14.1 68.3 -15.4 42.6 51.8 54.2 53.9 53.0 6.1 5.0 6.9 12.1 6.2 2.6 17.5 9.5 4.2 4.2 8.4 10.4 5.9 7.8 12.8 4.6 5.5 19.6 8.5 4.5 4.9 8.7 .1 9.6 6.4 8.1 12.8 2.8 .7 20.2 8.8 4.7 4.9 9.6 2.6 10.2 6.9 11.0 13.7 3.0 3.2 21.6 9.4 4.9 5.1 9.7 9.8 11.2 7.0 13.5 14.1 3.9 3.1 23.2 9.9 5.0 5.1 9.3 36.5 -8.5 — 10.7 -12.2 -12.4 — 12.5 74.0 82.5 79.1 96.2 129.2 493.7 563.6 615.8 686.3 774.3 • The national defense function. • Major changes in defense spending relative to the economy have occurred over this period. In 1966, the first year of major U.S. combat involvement in Vietnam, national defense spending was equal to 7.6% of the GNP. Defense spending rose significantly faster than the economy in the next 2 years due to the Vietnam war, peaking at 9.5% in 1968, and then fell to 5.1% in 1978 and 1979. In 1981 defense spending is anticipated to be equal to 5.3% of the GNP; under the President's planning guidance, it is expected to remain at that percentage (rising in real terms) at least through 1983. 80 THE BUDGET FOR FISCAL YEAR 1981 • While national defense spending was fluctuating relative to the GNP, human resources programs more than doubled relative to the economy between 1966 and 1976. Such spending declined by 1% of GNP from 1976 to 1979 and is expected to grow by about the same percentage between 1979 and 1981. The 1981 figure does not include the effects of allowances for pay raises and contingencies, which are included in the "all other nondefense" grouping. • The "other" category is made up of net interest and all other outlays, including allowances. There has been no major trend in totals for the category relative to the GNP, However, the net interest component rose from 1.3% of GNP in 1966 to 1.5% in 1971 and 1.6% in 1976; it is estimated at 2.0% in 1981, but is projected to decline relative to GNP in subsequent years as the budget deficit is reduced or eliminated, inflation and interest rates decline, and the GNP grows. The historical table on outlays by function and subfunction (table 19 in Part 9 of this document) extends back to 1971. Data on budget outlays by larger cluster beginning in 1940, by major function^ beginning in 1948, and by subfunction beginning in 1962 are - available upon request from the Office of Management and Budget, but are not printed in this document because of space constraints. Credit and credit control—In past years, each national needs section in this part of the budget contained special presentations on loan and loan guarantee programs where these programs were significant. This year, the budget reflects a comprehensive and systematic review of Federal credit activities, and includes for 1981 recommended annual appropriation limitations for a wide range of Federal credit activities. The credit control system covers both onand off-budget Federal loan and loan guarantee programs. The credit totals are discussed in Part 2 and substantial information on credit activities is given in Special Analysis F (Federal Credit Programs) of the Special Analyses volume and in the Budget Appendix. There are three forms of Federal and federally assisted credit activity: direct loans by the Federal Government, Federal guarantees or insurance of private lending, and direct loans by Government-sponsored enterprises. In addition, Federal tax advantages (called "tax expenditures") affect the cost of private and State and local borrowing. Neither tax expenditures nor lending by Government-sponsored enterprises is included in the Federal credit control program, although the effects of both are considered in developing overall credit policies. For direct loans, the credit tables in each national needs section show the new loans made, the offsetting loan repayments, sales and adjustments, and the net loan outlays. For loan guarantees, INTRODUCTION 81 the tables show new loan guarantees and net loan guarantees. The sum of these transactions (direct loans plus loan guarantees) equals the total program included in the Federal credit control system. The tables show data for 1979 through 1981. The exact meaning of the term "credit" is not a matter of clear definition or agreement. For purposes of the new control system, coverage has been initially restricted to activities that are unambiguously part of the Federal Government and primarily oriented toward credit. The special analysis on Federal credit programs is broader in its coverage. The differences between the coverage of the credit control system and the special analysis arise from three primary causes: 1. Privately owned Government-sponsored credit enterprises are excluded from the credit control system (as they are from the budget) because of their private ownership. They are included in the credit special analysis because of their Federal sponsorship. 2. In several programs, Federal loan guarantees cover less than 100% of the principal of any guaranteed loan. The credit control system includes only the Federal contingent liability, which is the amount of loan principal actually guaranteed, whereas the credit special analysis shows the full value of loans made with total or partial Federal loan guarantees. 3. Many other activities are clearly similar to regular credit activities but their most significant program characteristics are of a noncredit nature. For example, Federal price guarantees or long term lease agreements have important credit attributes as well as their noncredit program characteristics. Transactions of this sort are currently excluded from the credit control system, although they are frequently controlled by some other means in the budget. As the credit control system evolves, present exclusions will be reviewed. The table below shows—for the total of net lending and loan guarantees—the difference between those Federal credit programs included in the credit control system and the total Federal and federally assisted credit activities reported in the credit special analysis.1 TOTAL FEDERAL CREDIT AND CREDIT CONTROL—1981 ESTIMATES (In billions of dollars) Net lending and loan guarantees in the Federal credit control system Federal and federally assisted credit excluded from the credit control system: Privately owned Government-sponsored enterprise loans that are not federally guaranteed.... Nonguaranteed portions of loans partially guaranteed by the Federal Government All other 13.8 8.8 1.8 Net Federal and federally assisted credit (Special Analysis F) 71.2 'See Special Analysis F (Federal Credit Programs) for additional details. 310-000 0 - 8 0 7 46.9 82 THE BUDGET FOR FISCAL YEAR 1981 All credit programs are controlled through the basic legislation authorizing the programs and setting the conditions under which they can operate. This normally does not provide control over the annual levels of program activity. Therefore, under the new credit control system, annual controls are proposed, where appropriate, through dollar limitations on program activity. This takes the form of proposed appropriation language for each affected account that would set an annual ceiling (limitation) on the authority to incur obligations for direct loans (gross lending) and the authority to enter into loan guarantee commitments. A number of programs are included in the credit control system that are not subject to specific annual limitations in appropriations acts in this year's budget. In such instances, estimates of expected activity are made, displayed in the Budget Appendix, and included in credit control totals. There are two general reasons why programs are exempted from credit control through limits in appropriations acts. • Emergency assistance programs and some insurance programs, such as those of the Federal Deposit Insurance Corporation, may use loans as one means of carrying out their responsibilities. Specific annual limitations could hamper their ability to do so efficiently, and would not effectively restrain total credit demand on the economy in any case. • Entitlement programs, under which any qualified recipient has a legal right to loans or loan guarantees, are essentially uncontrollable through the appropriations process. While included in the control system, such programs are best controlled through changes in the basic authorization laws that establish legal entitlements. In addition, for the 1981 budget, the administration is not proposing specific limitations for the basic insuring activities of the Federal Housing Administration, for guarantee levels of the Government National Mortgage Association's mortgage-backed securities, for energy conservation lending activities of the Tennessee Valley Authority (TVA) or for the agricultural export credit activities of the Commodity Credit Corporation. These exceptions, which will be reviewed during the coming year for the 1982 budget, reflect a concern that the new credit control system not be perceived as restricting credit to the housing industry at a time when it may be entering a period of relative weakness, to unduly constrict the TVA's new energy conservation loans, or to restrict the President's authority to expand agricultural export activities. The activities of the Federal Financing Bank (FFB), discussed below, are a special case. The FFB does not conduct credit programs on its own—rather, it services any eligible program that is authorized to use its financing. Therefore, control must be established on the agencies using the Bank services. 83 INTRODUCTION FEDERAL LOANS AND LOAN GUARANTEES IN THE CREDIT CONTROL SYSTEM BY MAJOR FUNCTION—1981 ESTIMATES (In millions of dollars) Subject to appropriation bill limitations Exempt from appropriation bill limitations Total Direct Loans International affairs Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment and social services. Health Income security Veterans benefits and services General government General purpose fiscal assistance Purchase of direct loans from other accounts { - ) . New direct loans to the public Repayments, loan sales, and other adjustments (-) 4,520 1,466 18 ... 3,801 8,783 425 1,664 951 163 2 1 1 174 , , , -13,086 797 5,624 27,405 22 1,208 205 305 785 36,351 8,885 5,317 1,466 18 9,425 36,188 447 2,872 1,156 163 307 786 1 174 -13,086 45,236 —29,250 15,986 Net loan outlays Loan Guarantees National defense International affairs General science, space and technology Energy Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment and social services. Health Income security Veterans benefits and services Secondary guarantees of loans that are already guaranteed ( - ) Guarantees of direct loans ( - ) New guarantees to the public 10,825 9,584 30 8,995 101 7,347 5,866 59,565 2,222 4,769 2,160 268 10,825 9,584 -40 -25,093 -25,701 -25,133 -25,701 27,347 33,551 60,898 -30,000 30 8,995 101 4,502 354 5,934 2,129 2,915 2,160 268 2,845 5,512 53,631 93 1,854 „ Repayments and other adjustments ( - ) Net loan guarantees Total, net loan outlays and loan guarantees See Part 7 for a further discussion of this requirement. 30,898 46,884 84 THE BUDGET FOR FISCAL YEAR 1981 There are inevitable differences between the authority to obligate or to make guarantee commitments and the actual disbursement of cash or entering into loan guarantees; for purposes of control, the budget must focus on the authority, but the tables in this part of the budget focus on the actual or anticipated value of the transactions themselves. This focus on the volume of loans made or loan guarantees entered into, when presented along with budget outlays, provides a more complete view of Federal activities in a particular area. The table on Federal loans and loan guarantees in the credit control system shows the total estimated volume of new loans and loan guarantees—both on- and off-budget—by major function in 1981. Since a substantial number of loan assets are sold by one account to another (primarily to the FFB), these sales must be deducted to arrive at the total of new loans extended to the public. Similarly, since some loans are guaranteed more than once and since direct loans made by the FFB are also guaranteed, a deduction must be made to avoid double-counting to arrive at a total of new loan guarantees extended to the public. The sum of the direct lending and loan guarantees measures total new credit activity extended to the public under the credit control system. The table distinguishes the portion subject to appropriation bill limitations from the portion that is not. National needs and agency missions.—In keeping with the requirements of the Congressional Budget Act of 1974, the national needs presentation is supported by analyses of agency missions and major programs. In general, subfunction totals that comprise each major functional category represent the resources devoted to agency missions. No significant change has been made in the budget functional structure from that used in the preceding budget. Although each Federal activity is classified in one function that defines its most important purpose so that the budget total will consist of mutually exclusive functions, many activities serve more than one national need or major mission. Therefore, the subsections in this part of the budget contain subsidiary information that identifies, to the extent feasible, those programs whose primary objective is to meet one category of national needs but that also make substantial contributions toward meeting other national needs. Two categories of budget authority and outlays are treated differently in the actual from the estimated years in the national needs framework: • Future increases in Federal pay are not distributed by budget account, program, or agency. These are reflected in two INTRODUCTION 85 allowances for pay increases—one for the Defense Department and one for the rest of the Government. Hence, the functional total for national defense includes the pay allowance for the Department of Defense, military functions; the nondefense total includes the nondefense pay allowance, but the allowance is not distributed among the nondefense functions. • The budget contains an allowance for contingencies to cover unanticipated requirements. It also includes amounts necessary to finance welfare reform. The allowance does not represent a specific budget request and the Congress is not asked to provide an appropriation for that purpose. Hence, no actual outlays are made from the contingency allowance; any contingencies are financed and fully reported in the appropriate function, so the contingency allowance for all past periods is always zero. In addition, a separate allowance is included for the President's national health insurance plan, which starts in 1983. Attribution of the Federal Financing Bank (FFB) outlays to sponsoring agency and functions.—The FFB is an entity in the Treasury Department that, by law, is outside of the budget totals. The FFB performs two significant roles: (1) it is a source of capital for some Federal programs, and (2) it makes or finances most of the Federal Government's direct loans. The FFB's role as a source of debt capital for Federal agencies does not involve outlays and, therefore, will not be discussed in this section. The FFB's role as an offbudget Federal entity, however, has major implications for both the credit control system and the distribution of off-budget outlays by function. The FFB borrows money from the Treasury to finance whatever programs are authorized to use the FFB as a source of funding. The Bank's net outlays are composed almost entirely of loans made and loan assets purchased by the FFB, offset by their repayments. The FFB has no loan losses, only minimal administrative costs, and a policy of charging interest rates of one-eighth of one percent higher than the interest rates it pays to the Treasury, so that the interest income and expense largely offset each other. The FFB does not initiate programs; rather, it makes loans to finance credit programs of other Federal agencies and programs. It does not make any loans or purchase any financial assets unless they are guaranteed by some other Federal Government entity. Its resources are available without restriction for all eligible programs. Therefore, the Bank does not ration its credit. This has created a situation in which both on- and off-budget agencies or accounts sell direct loans to the FFB or issue loan guarantees (which do not count as outlays) that are converted into off-budget direct loans (outlays) of the FFB. The FFB facilitates financing, but financing 86 THE BUDGET FOR FISCAL YEAR 1981 through the FFB does not change either the budget treatment of the transactions involved or the degree of control that can be exercised over them. Accordingly, there is no plan to control directly the extension of credit by the FFB; rather, the credit control system aims at controlling obligations for new loans and commitments for new loan guarantees by the parent programs and accounts that may lead to subsequent FFB outlays. Net FFB income is returned to the general fund and is treated as offsetting receipts in the budget. All FFB budget authority and outlays are shown in the commerce and housing credit function. In addition, the FFB outlays are attributed to the programs being served. This attribution is shown in a new memorandum entry that has been added to each applicable functional table. Since the attributed FFB totals in the memorandum entries are already included in the commerce and housing credit function, they cannot be added to the functions to which they are attributed without double-counting. The Full Employment and Balanced Growth Act—Section 4(a) of the Full Employment and Balanced Growth Act of 1978 provides that the President's budget shall incorporate the programs and policies that the President deems necessary to achieve the mediumterm annual numerical goals specified in the Act for employment and unemployment, production, real income, productivity, and prices. These goals are presented in the President's "Economic Report" and are discussed in Part 3 of the "Budget". Programs and policies to achieve these goals are discussed throughout this section. This act also specifically provides that the budget should include recommendations for specific policies to reduce the rate of inflation. In addition, the Act states that policies and programs set forth in the President's budget shall include, to the extent deemed appropriate by the President, a consideration of a broad range of issues. Among those specifically mentioned are energy; transportation; the environment; small business; agriculture; land and water conservation; rural development; urban development; employment; health care; education and training; child care; social services; housing; aid to State and local governments; national defense and international programs; the effect on the interregional distribution of jobs and income of Federal procurement, grants, contracts, and the closure of military bases; job dislocation resulting from Federal laws, regulations, and policies; improving the competitiveness of the United States in international trade; and balancing the budget. As the national needs sections that follow demonstrate, the issues listed in the Act were among those weighed carefully in the process of developing the President's budget recommendations. Policy conclusions and the reasons for them are put forth in this INTRODUCTION 87 part of the budget. No attempt, however, has been made to include specific references to the act in each instance where one of the issues listed above is discussed. Tax expenditures.—Tax expenditures are features of the tax law that provide special benefits or incentives. They are revenue losses under the individual and corporate income tax laws that are attributable to special exclusions, exemptions, or deductions from gross income, or to special credits, preferential rates of tax, or deferrals of tax liabilities for special classes of taxpayers. They are one of several means by which the Federal Government can carry out policy objectives. In most cases, tax expenditures can be viewed as alternatives to other instruments of Government policy such as outlays, loan guarantees, regulations, and other tax law provisions. The most important tax expenditures are discussed in the national needs sections that follow so that they may be compared with the outlays and loan guarantees that serve the same broad purpose. Tax expenditures are discussed further in Part 6 and in Special Analysis G, "Tax Expenditures." The latter includes a listing and an analysis of all tax expenditures, along with a discussion of their definition and measurement. Other Federal fiscal activities.—The Federal Government allocates resources by means other than those reflected in budget outlays, tax expenditures, and loan guarantees. Outlays of the offbudget Federal entities, which are federally-owned and controlled but excluded from the budget under provisions of laws, are similar in nature to budget outlays. The largest off-budget entity by far is the Federal Financing Bank, discussed above. The regulation of economic activity also has a major impact on the economy in many sectors. Finally, provisions of the tax law affect the allocation of resources among private uses and the distribution of income among individuals in many important ways not covered by tax expenditures. Federal taxes other than income taxes have economic effects, as do tax rates, personal exemptions, and other features of the income tax structure that are not treated as tax expenditures. The national needs sections that follow include information on off-budget Federal entities and discuss major issues regarding economic regulation. Off-budget Federal entities and privately owned, Government-sponsored enterprises are also discussed in Part 6 of the Budget 88 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL DEFENSE National Needs Statement • Protect America's people, its institutions, and its lands from foreign aggression. • Improve the current overall military balance between the United States and its allies, and the Soviet Union and its allies. • Deter a nuclear attack on the United States, or its forces, or on other nations whose security is important to us, and assure that should deterrence fail, the United States can inflict unacceptable damage on the Soviet Union in retaliation. • Maintain, with our allies, sufficient military power to . counter aggression anywhere in the world, • Seek international agreements to limit and reduce all armaments, to prevent proliferation of nuclear weapons technology, to restrict arms trade, to settle disputes by peaceful means, and to strengthen international stability. To meet these national needs, the 1981 budget proposes $161.8 billion in budget authority for national defense. Outlays are estimated at $146.2 billion in 1981, increasing to $165.5 billion in 1982. Department of Defense.—The basic national security objectives of the United States are to provide for its physical security as a free Nation; to maintain its fundamental institutions and values; and to advance and protect U.S. interests in the world. To achieve these objectives we must be able to deter attacks on the United States, our allies and friends; to prevent others from imposing their political will on the United States by military means; to influence international affairs from a position of recognized strength; and to fight successfully when necessary. We seek to deter armed conflict, to establish and maintain stability, to promote international security through arms control and other international agreements, and to prevent the proliferation of nuclear weapons. Our national security does not depend solely on the military forces we can field; it is also affected by the strength of hostile forces that may confront them. Our forces are adequate to protect us against today's threats, but Soviet military capability is growing, Our forces must be increased if they are to contain Soviet aggression and continue to assure our security in the future. This NATIONAL DEFENSE 89 NATIONAL NEED: DEFENSE, MILITARY (Functional code 051; in billions of dollars) Budget authority Major missions and programs Strategic forces 1 General purpose forces Intelligence and communications Airlift and sealift Guard and reserve Research and development 3 Central supply and maintenance Training, medical, and other general personnel activities Administration and associated activities Support of other nations 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 8.0 47.4 8.0 1.7 6.9 10.9 13.0 10.3 51.6 9.1 2.0 7.6 11.8 14.5 11.7 58.3 10.6 2.4 8.7 14.1 15.6 13.3 66.1 12.0 2.7 9.9 16.0 17.7 14.9 74.1 13.5 3.1 11.1 17.9 19.8 26.4 2.3 .4 28.7 2.5 .6 32.9 3.0 .9 37.3 3.3 1.1 41.7 3.6 1.3 125.0 138.6 158.2 179.4 201.0 Prior-year funds and other financial adjustments -.2 J .6 .6 .5 Total obligational authority 124.8 139.3 158.7 180.0 201.5 Total, budget authority ' Excludes SO. 7 M a i in 1980 and 5 1 6 billion in 1981 for MX missile, included in R. & D. category. *bcludes R. & D. in other program areas on systems approved for production. will require a sustained commitment over a period of years. The United States and its NATO (North Atlantic Treaty Organization) allies have made that commitment, each promising to increase its defense spending by 3% or more per year in real terms. The United States has met this 3% real growth commitment during the past 2 years. In light of recent international developments, the 1981 budget goes beyond this commitment. It reflects a real program increase, in total obligational authority and budget authority, of more than 5%. From 1981 through 1985, real program growth of more than 4% per year is projected. This represents a major—but clearly necessary—commitment to strengthening our defense capabilities. The defense levels projected for 1981 through 1985 are cumulatively about $100 billion higher than the amounts that would be needed simply to maintain the 1980 level in real terms. The increased level of defense resources proposed for 1981 would help preserve strategic deterrence, improve the combat effectiveness and readiness of our NATO forces, and enhance our capability to deter conflict worldwide through the rapid deployment of forces. Total obligational authority (TOA) for the military missions of the Department of Defense is proposed at $158.7 billion in 1981 and $180.0 billion in 1982. Outlays are estimated at $142.7 billion in 1981. This is an increase of $15.3 billion over 1980, which is approximately 3.3% growth in real terms. 90 THE BUDGET FOR FISCAL YEAR 1981 The major proposals reflected in the 1981 budget are: • Upgrade our strategic forces so that initiation of nuclear war continues to be clearly disadvantageous for the Soviet Union. • Improve, in cooperation with our NATO allies, the ability of our forces to mobilize quickly and fight effectively for the defense of Europe, in order to make initiation of a conventional war clearly disadvantageous for the Soviet Union and its Warsaw Pact allies. • Enhance our capability to deter and, when necessary, respond to, crises outside Europe, especially in critical and potentially unstable areas such as Northeast Asia, the Middle East, and the Persian Gulf. • Continue to modernize our naval forces to assure freedom of the seas, to maintain maritime and naval lines of communication, and to enhance our ability to conduct military operations wherever we are challenged. • Maintain our ability to monitor foreign military developments and activities and to verify arms control agreements, with a high degree of reliability. • Increase military pay, benefits, and reimbursements to help attract and retain sufficient numbers of experienced military personnel in the coming years, as the population of young people declines in numbers. • Continue to improve operating efficiencies through greater competition in the acquisition process, supply system reforms, and improved utilization of civilian personnel. These budget proposals are consistent with the defense spending goal adopted by NATO. In 1977 and again in 1979, the NATO allies agreed to U.S. proposals that each member should aim at annual defense spending increases of about 3% above the rate of inflation to maintain the deterrent value of NATO forces and to counter the large increases in Soviet defense capability. This budget exceeds that objective. For many years, rising Soviet military spending levels have permitted steady increases in the size and combat capabilities of Soviet forces. These increases occurred, for the most part, while U.S. defense spending was declining, in real terms, from its Vietnam war peak. By the mid-1970's, it was apparent that NATO members needed to increase their defense efforts to prevent the Warsaw Pact forces from eventually achieving a position of military superiority. The 7-year downward trend in real U.S. defense program (TOA) was reversed in 1976. Annual increases in real defense outlays averaged 3% in 1979 and 1980. The budget estimates for 1981 and 1982 reflect real outlay increases averaging 3.8% a year. NATIONAL DEFENSE 91 Real growth in defense spending is not an end in itself. What is essential is that we now build our conventional and strategic forces to the levels required to assure our future security—and keep them there. To be adequate, our defense capabilities must keep pace with Soviet growth. The necessary funds must be provided. The 1981 budget provides funds for necessary improvements in both our conventional and strategic capabilities, and proposes significant economies to make the defense dollar go further. The principal objective of strategic forces is to act as an effective deterrent to both nuclear and conventional warfare. The 1981 program provides $1.6 billion for the new intercontinental ballistic missile program, the MX, which is in full-scale development. The MX is scheduled to become operational in 1986. The 1981 program provides for continued procurement of the Trident missile and submarine. Funds are also provided for the air-launched cruise missile, as well as for improvements to our bomber and airlaunched missile fleets. As our part of the long-term NATO defense program that was approved in 1977 and reaffirmed in 1979, the 1981 budget also supports programs to improve the ability of our conventional forces to deter or respond to military threats in Western Europe and elsewhere. These include the continuation of cooperative NATO programs for the joint purchase and operation of a fleet of airborne warning and control (AWACS) aircraft; joint production of the new F-16 fighter aircraft; and the development of a common gun for new tanks. The budget also provides funds for storing additional U.S. Army equipment in Europe to make possible a more rapid force buildup there. The budget requests funds to upgrade artillery, anti-tank weapons, combat medical support, and the combat capability of land forces in Europe. It provides $2.3 billion to continue the procurement of a new main battle tank, an armored personnel carrier, and air defense missile systems. These improvements will expand our conventional warfare capability in Europe. The budget will enhance our ability to deploy our forces rapidly anywhere in the world. It proposes improvements to the C-5A and the C-141 cargo aircraft, initial procurement of a new sealift vessel for overseas storage of land force equipment, and the development of a new long-range airlift aircraft. Strategic forces.—The most serious threat to our security is a nuclear war. The probability of such a war has been kept very low by the deterrent effect of our triad (bombers, and land- and submarine-based missiles) of strategic nuclear forces. These forces must be able to retaliate with devastating effect, even after suffering a first strike. They must also be capable of varying degrees of response appropriate to different levels of attack. This will assure 92 THE BUDGET FOR FISCAL YEAR 1981 that Soviet leaders will have no incentive to initiate a nuclear attack against the United States, nor will they be able to gain any advantage in a conventional conflict by threatening a nuclear attack. Maintenance of adequate strategic force strength is an essential foundation for deterrence at all possible levels of conflict. To this end, the 1981 budget proposes modernization of each component of the strategic triad. Our land-based intercontinental ballistic missiles will be enhanced by the larger, more accurate, and less vulnerable MX. These missiles and their mobile launchers will be based among horizontal shelters linked by special road circuits constructed in the western part of the United States. This system minimizes vulnerability to attack and complies with arms control objectives. The budget also supports programs to deploy cruise missiles on modernized B-52 bombers. Authorization for the ninth Trident submarine is requested in 1981. The Trident submarines will replace the Polaris and Poseidon submarines as the latter reach the end of their service lives. Important improvements are being made to strategic command, control, and warning systems. These radar and satellite systems insure reliable warning of a hostile attack. Our intermediate-range nuclear weapons, based in Europe, act as a deterrent against potential Soviet military aggression, either nuclear or conventional. To assure continued deterrence, we must strengthen these forces to offset the Soviet deployment of new SS20 nuclear missiles against Western Europe. In cooperation with our NATO allies, we are beginning to modernize NATO's intermediate-range nuclear forces through deployments of ground-launched cruise missiles and new Pershing II ballistic missiles. These weapon modernization programs work in concert with our continuing arms control agreements and negotiations to promote a strong and stable strategic posture. While the United States possesses the superior economic and technical capacity necessary to deploy still greater nuclear forces, it is not in our interest to do so, if we can forge balanced and verifiable limits to the strategic competition with the Soviet Union, General purpose forces.—Most of the defense budget goes for conventional military forces, which help deter or counter nonnuclear military aggression. The 1981 budget proposes a $6.7 billion increase over 1980 budget authority. Active general purpose forces include 16 Army divisions, 3 Marine divisions, 3 Marine air wings, 26 wings of Air Force tactical aircraft, and 295 naval warships, including 12 aircraft carriers and 12 carrier air wings. 93 NATIONAL DEFENSE A number of important initiatives for modernizing existing forces and improving their readiness for combat are proposed. These initiatives will strengthen the ability of our general purpose forces to maintain the balance of conventional military power, particularly in Western Europe, and to deter aggression elsewhere in the world. SUMMARY OF ACTIVE MILITARY PERSONNEL AND FORCES (Year end—i.e., as of September 30) 1979 actual I960 estimate Military personnel (in thousands): End strength: Army Navy Marine Corps Air Force 758 522 185 559 Total, Department of Defense W A Average strength: Army Navy Marine Corps Air Force Total, Department of Defense Strategic forces: Intercontinental ballistic missiles-. Minuteman Titan II Polaris-Poseidon-Trident Strategic bomber squadrons General purpose forces: Land forces: Army divisions Marine Corps divisions Tactical air forces: Air Force wings Navy attack wings Marine Corps wings Naval Forces: Attack and multipurpose carriers Nuclear attack submarines Other warships Amphibious assault ships Airlift and sealift forces: C - 5 A airlift squadrons Other airlift squadrons Sealift fleet 1981 estimate 774 528 185 558 2^045 776 534 185 565 W59 757 525 186 564 765 520 183 559 770 530 184 562 ^033 W27 W 7 1,000 54 656 25 1,000 54 600 25 1,000 54 544 25 16 3 16 3 16 3 26 12 3 26 12 3 26 12 3 13 72 172 65 13 75 184 63 12 85 198 60 4 13 47 4 13 48 4 13 2 45 1 1 Includes 5 e*-Po!ans ships operating as attack submarines, ' Sealift capacity for both dry cargo and petroleum will be greater in 1981 than in 1979 and 1980. Army forces are designed primarily to meet the most demanding of all general purpose force challenges—a land conflict between 94 THE BUDGET FOR FISCAL YEAR 1981 NATO and the Warsaw Pact countries—while retaining the flexibility to meet threats to U.S. interests elsewhere. Improvements proposed in 1981 include: • modernization of equipment, including introduction into the force of new types of tanks, infantry fighting vehicles, helicopters, and new air defense systems; • storage of additional equipment in Europe to facilitate rapid U.S. reinforcement of NATO in an emergency; • greater combat readiness of combat units in Europe and selected units in the United States; • improved living and working conditions for our soldiers; and • improved ability of our forces to withstand nuclear, biological and chemical warfare. The XM-1 main battle tank represents a major increase in the Army's ability to survive and maneuver on the modern battlefield, A new type of armor enables the XM-1 to withstand direct hits and continue fighting. A more powerful engine and an improved track system enable the XM-1 to move faster over rougher terrain than other tanks. The budget provides for continued procurement of the XM-1 in 1981, The Army's new infantry fighting vehicle, also included in the 1981 program, will provide infantry forces with the speed, protection, and firepower needed to fight alongside the XM-1 tank. The Patriot air defense missile system will provide more effective protection of vital targets, such as depots, bridges, and airbases. The Patriot system is able to counter mass air attacks at longer ranges and higher altitudes than previous systems. The ability of combat and support forces to respond effectively when required depends on the condition of equipment and the ability of well-trained combat units to act with confidence, skill, and coordination. To maintain our military forces in a high state of readiness, the 1981 budget provides for continued increases for unit training and for continued development of a national training center for ground forces. Backlogs of weapons systems overdue for maintenance would be reduced further under the budget proposals. Inventories of spare parts are being increased to bolster the combat endurance of our forces' weapon systems and equipment. In view of recent upward revisions of North Korean military strength, the budget reflects a decision by the President to suspend the withdrawal of the Second Infantry Division from Korea. This will help maintain stability in Northeast Asia. Air Force tactical aircraft must be able to gain superiority in the air, give close support to ground forces, disrupt enemy forces behind the lines, and limit enemy air attacks on allied forces and installations. NATIONAL DEFENSE 95 The 1981 budget proposes procurement of the following Air Force tactical aircraft and equipment: • F-15 fighter aircraft for maintaining air superiority; • F-16 multimission aircraft for both maintaining air superiority and attacking ground targets; • more capable versions of the Sidewinder and Sparrow air-toair missiles for fighter aircraft; • EF-111A aircraft for jamming enemy air defense radars; • A-10 attack aircraft to provide close support of our ground forces by attacking tanks and similar targets; • KC-10 aerial tankers for long-range refueling of fighter, bomber, and transport aircraft; and • TR-1 tactical reconnaissance aircraft with advanced radars to improve our ability to locate enemy forces on the ground. Air Force tactical units will remain fully prepared to move overseas rapidly to any potential trouble spot. All new fighter aircraft are provided with aerial refueling capability to assist in such deployment. Real increases are proposed for Air Force tactical operations, to permit greater readiness and more realistic training. NATO defenses are being strengthened by the deployment of new F-15 fighter aircraft and A-10 attack aircraft in Europe. In addition, many allied airbases will be upgraded so that they can be used by the U.S. during mobilization, thereby increasing U.S. combat flexibility. The budget also requests continued funding for U.S. participation in the program for NATO ownership and operation of 18 AW ACS airborne warning and control aircraft. Naval general purpose forces serve our national needs in several ways. The presence of U.S. warships in an area provides a visible symbol of support to our allies and a deterrent to military action both in peacetime and during crises. Should deterrence fail, our naval forces will protect vital sea lanes and deny their use to the enemy. Our naval forces can also attack land targets and support the U.S. Marine Corps in amphibious assaults. Total fleet size will increase from 540 ships in 1980 to 544 in 1981. Delivery of 5 new Los Angeles class submarines and conversion of 5 Polaris submarines to attack submarines will increase the nuclear attack submarine force by 10. Other warship forces will be augmented with the delivery of 4 new anti-air-warfare destroyers and 8 new frigates. Active amphibious force ships will decline due to the transfer of ships to the Naval Reserve. Our ability to transport one Marine amphibious division will be maintained. Maintenance of our naval superiority requires that we continually modernize our naval weapon systems. Toward that goal, the $45 billion 5-year shipbuilding plan for 1981-85 calls for the construction of 97 new ships, including 6 ballistic missile (Trident) subma 96 THE BUDGET FOR FISCAL YEAR 1981 rines. The 1981 budget includes procurement of the following new general purpose force ships: • 2 large warships (destroyers) equipped with the AEGIS antiair warfare system to help protect the fleet from aircraft and missile attack; • 4 smaller warships (frigates) to protect military convoys and fleets; • 2 cargo ships for transporting combat equipment in support of the Marine Corps, as part of our Rapid Deployment Forces, and 1 amphibious landing ship; • 1 nuclear powered attack submarine and 5 surveillance ships to counter enemy submarine threats; and • 1 salvage ship for recovering disabled ships or aircraft. The budget requests funds to design new ships of moderate cost that can be bought in quantity to maintain U.S. naval superiority. These include a new anti-air warfare destroyer, a new attack submarine, and a new anti-submarine frigate that can be used by the Naval Reserve. Plans for the modernization of our naval aircraft forces include procurement of F-14 and F-18 fighter aircraft in 1981. The F-18 will be purchased in large quantities over the next several years. By using a single type of aircraft for a major portion of both fighter and attack missions, the Navy and Marine Corps will reduce the cost of buying and maintaining sufficient numbers of aircraft to meet national security needs. Also, available aircraft carrier capacity will be used more effectively. Airlift and sealift forces.—Airlift and sealift forces provide dayto-day peacetime logistic support to U.S. forces stationed overseas and must be able to move military personnel and equipment to combat zones quickly. The U.S. and its allies depend upon rapid movement and resupply to sustain our forces. Awareness of our ability to move forces and supplies rapidly to crisis areas deters hostile acts against countries friendly to the U.S. Most of the $2.4 billion in 1981 budget authority proposed for airlift and sealift forces supports day-to-day operations and maintenance. These funds will assure a high state of readiness for these forces. Several specific measures are being taken to assure that U.S. forces can deploy rapidly to any point in the world. The C-5A cargo aircraft is being modified so that it can carry maximum loads and remain in the airlift force beyond the year 2000. C-141 aircraft are being modified so that they can be refueled in flight, thus extending their range. Their fuselages are being lengthened to enable them to carry heavier payloads. In addition, a new, wide-body, long-range aircraft, the CX, is being designed to improve our ability to respond rapidly to contingencies. NATIONAL DEFENSE 97 The Civil Reserve Air Fleet (CRAF) modification program is making it possible for U.S. commercial aircraft to supplement our military airlift capability in an emergency. The budget requests funds for structural improvements to U.S. commercial jumbo jets to enable them to transport military equipment overseas. Under the budget proposals, our ability to deploy Marine Corps ground combat units rapidly in support of friendly nations would be enhanced by construction of a new class of ships that would be stationed near potential trouble spots, carrying ready-use Marine Corps equipment. All of these programs are designed to provide enough force on a timely basis to deter hostile acts or, if necessary, to respond with the appropriate level of military force. Guard and Reserve forces.—Guard and Reserve forces must be fully trained and equipped forces that can be rapidly mobilized and deployed as an integral part of the active forces in an emergency. Units scheduled for early deployment in the event of mobilization receive the highest priority for training and equipment. Continued improvement of Guard and Reserve unit strength levels are projected for 1981 and beyond. Added emphasis is being placed on better utilization of trained personnel. More intensive and effective unit training programs are proposed. These will permit increased participation of Guard and Reserve personnel in major training exercises and tactical deployments to locations overseas. This will help acquaint them with foreign military environments. The budget provides for the development of an anti-submarine warfare frigate for the Reserves, and for supplying Guard and Reserve forces with the new A-10 attack aircraft. Research and development—Defense research and development on new weapon systems is directed toward maintaining our current lead in military technology. The 1981 budget for research and development, including programs approved for production, provides a $3.0 billion increase over the 1980 budget authority level to strengthen our technology base, significantly upgrade our strategic capability, and modernize our conventional forces. Principal research and development initiatives, some of which have been noted above, include: • Technology base.—Substantial real growth in budget authority is proposed for basic research and the exploration of promising technologies such as high-energy lasers and very-highspeed integrated circuits. • Strategic systems.—The budget places major emphasis on fullscale development of the new MX land-based intercontinental ballistic missile system. 310-000 0 - 8 0 - 8 98 THE BUDGET FOR FISCAL YEAR 1981 • Tactical systems.—Significant levels of funding are provided for development of new Army air defense systems and for support areas such as communications and electronics. Navy efforts to develop a new fleet attack submarine, a new guided missile destroyer, and improved anti-air warfare capabilities will help insure that we maintain our control of the seas. Proposed Air Force initiatives include the development of the new CX long-range transport aircraft, and improved missiles and munitions for fighter aircraft. • Other defense research and development.—Programs under development that offer potential benefits to both the military and civilian communities include the construction of facilities at Vandenberg Air Force Base, California for space shuttle operations, and defense participation in the interagency national oceanic satellite system project. Efficiencies.—Improved efficiency, reduced costs, and increased productivity mean that more resources will be available to improve combat capabilities. Defense programs have been reviewed to identify ways to achieve the lowest program costs while still achieving our national security requirements. Greater competition is being encouraged in contracting, and the purchase of standard goods and services is also being encouraged. Initiatives in supply management include correction of pricing inequities, disposal of obsolete or excess stocks, and greater use of commercially-available equipment. Active duty military personnel.—Since 1973 the United States has relied exclusively on volunteers to meet peacetime military personnel requirements. During this period, the All Volunteer Force has provided the military services with an active force of a quality equal or superior to that achieved under the draft. Active-duty strength levels have remained within 2% of congressionally authorized levels. During 1981 the military services should continue to attract and retain enough qualified personnel to staff our armed forces adequately. An impending 25% decline in the size of the pool of eligible 18-year-olds over the next 15 years, however, may threaten the longer-run success of the volunteer force. To offset this decline, the military services are making efforts to increase the rate of reenlistment after the initial period of service, and otherwise improve personnel retention. To assist the Department of Defense in retaining adequate numbers of trained military personnel in 1981, the budget requests increased funding for enlistment and reenlistment bonuses. In addition, legislation will be proposed to set higher maximum bonuses and to authorize bonus payments at later stages of a service career than is now permitted. Funds are also requested to permit increased reimbursements for expenses incurred by personnel during reassignments. NATIONAL DEFENSE 99 Military pay adjustments.—The proposed Federal Employees Compensation Reform Act includes two revisions to the procedures for adjusting military pay levels. One would link military salaries directly to the average increase in private sector wages and salaries, replacing the current indirect linkage through Federal civilian salaries. The second would authorize the President to propose an alternative military pay adjustment in special circumstances. The 1981 budget estimates assume enactment of this legislation, and provide for a 7.4% average military pay raise, which is slightly higher than the 6.2% pay raise assumed for Federal civilian personnel. Military retirement reform.—The administration has submitted to the Congress legislation to reform the military retirement system. This legislation is designed to correct inefficiencies and inequities in the retirement program that were highlighted in the April 1978 Report of the President's Commission on Military Compensation. The key feature of the proposed retirement reform, drawn from the Commission's plan, would provide new career incentives by giving active-duty personnel special cash payments after 10 years of service. These payments would be charged against their future pension rights. Members completing 20 years of service would still be entitled to immediate pensions, although benefits would be reduced from current levels until age 60. Personnel leaving active duty after completing 10, but before completing 20 years of service would be entitled to deferred pensions beginning at age 60. Annuities would be calculated on high-2-years' average basic pay, rather than final basic pay, and would be offset by benefits available under the social security system. Although more costly in the near term, these proposals would eventually result in substantial cost reductions after a transition period that would protect the interests of members of the current active-duty force. At the same time, this legislation would provide major improvements over the current system in achieving more management flexibility, fairness, and cost effectiveness. Financing military retirement costs on an accrual basis.—Legislation has also been proposed to change the way the budget accounts for military retired pay. The budget now includes only the benefits paid to military personnel who have already retired. Under the proposed legislation, the budget would reflect the cost of retirement benefits being earned by military personnel on active or reserve duty at the time they are being earned. This change would improve personnel management by focusing attention on those retirement costs that can be controlled. Because the proposal involves complex 100 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL DEFENSE {Functional code 050; in millions of dollars) 1980 estimate 1979 actual Major missions and programs BUDGET AUTHORITY Department of Defense—Military: Military personnel Retired military personnel: Existing law Proposed legislation Operation and maintenance Procurement Research, development, test and evaluation. Military construction Family housing Revolving funds and other Allowance for civilian and military pay raises Other legislation Subtotal, Department of D e f e n s e Military Atomic energy defense activities Defense-related activities: Existing law Proposed legislation Subtotal, defense-related activities.... Deductions for offsetting receipts Total, budget authority OUTLAYS Department of Defense—Military: Military personnel Retired military personnel: Existing law Proposed legislation Operation and maintenance Procurement ' Research, development, test and evaluation. Military construction Family housing Revolving funds and other Allowance for civilian and military pay raises Other legislation Subtotal, Department of DefenseMilitary 1981 estimate 1982 estimate 1983 estimate 28,703 30,825 32,037 32,534 32,855 10,283 11,981 38,023 31,428 12,437 2,319 1,563 249 43,405 35,686 13,517 2,170 1,625 —574 13,700 37 48,563 40,524 16,486 3,251 1,972 -490 15,334 728 52,303 47,260 17,760 4,481 2,117 -440 16,954 888 56,004 54,736 19,763 6,314 2,215 —395 1,847 229 7,089 245 11,398 256 125,004 138,635 158,155 179,411 200,989 2,668 3,006 3,443 3,811 4,066 140 172 -178 378 -203 425 -203 451 -203 140 -3 -6 -3 175 -4 222 —4 248 -4 127,809 141,632 161,770 183,440 205,299 28,407 30,574 31,705 32,186 32,518 10,279 11,941 36,424 25,404 11,152 2,080 1,468 -201 40,852 27,648 12,933 2,147 1,571 -266 13,677 37 46,376 30,497 14,843 2,053 1,686 -222 15,345 727 49,904 36,061 15,926 2,561 1,933 -236 16,968 885 53,436 43,579 17,785 3,204 2,055 -230 1,819 229 6,968 245 11,204 256 115,013 127,400 142,700 161,621 181,661 2,541 2,980 3,386 3,630 3,961 ' 129 169 -178 362 —203 418 —203 443 -203 Subtotal, defense-related activities.... Deductions for offsetting receipts 129 -3 -9 —3 159 -4 215 -4 240 —4 117,681 130,368 146,241 165,463 185,859 Atomic energy defense activities Defense-related activities: Existing law Proposed legislation Total, outlays NATIONAL DEFENSE 101 changes in many parts of the budget, the changes will not be reflected in the budget schedules until the legislation is enacted. Tax expenditures.—The provision of housing and meals for military personnel, either in cash or in kind, is excluded from taxable income. This results in an estimated 1981 tax expenditure of $1.6 billion. In addition, disability-related military pensions received by current retirees are largely excluded from taxable income, resulting in a tax expenditure of $0.1 billion for 1981. National defense summary.—The accompanying national defense table shows budget authority and outlays by appropriation categories for the three major defense missions: military functions of the Department of Defense, atomic energy defense activities, and the defense-related activities of other agencies. Atomic energy defense activities.—Department of Energy responsibilities for national defense include research and development, testing and production of nuclear weapons, production of special nuclear materials, storage of nuclear wastes from defense programs and design of reactors for Navy vessels. The following table shows ATOMIC ENERGY DEFENSE ACTIVITIES (Functional code 053; in millions of dollars) Major mssjorts arvj programs BUDGET AUTHORITY Weapons research, development, test, and production Weapons materials production and waste management Naval reactor development Other research programs Total, budget authority OUTLAYS Weapons research, development, test, and production Weapons materials production and waste management Naval reactor development Other research programs Total, outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 1,448 1,654 1,972 2,180 2,343 702 298 220 794 278 280 872 305 294 941 378 312 999 393 331 2,668 3,006 3,443 3,811 4,066 1,387 1,651 1,869 2,028 2,247 685 258 211 806 272 251 903 314 300 941 353 308 999 388 327 2,541 2,980 3,386 3,630 3,961 the distribution of funding levels for these programs. Budget authority of $3.4 billion is requested for 1981, compared to $3.0 billion in 1980. The nuclear weapons program involves the design, research, development, testing and production of nuclear warheads for the 102 THE BUDGET FOR FISCAL YEAR 1981 nuclear weapons stockpile, including quality control and periodic inspection of the finished devices. Funding proposed for 1980 and 1981 supports increased missile warhead production. Nuclear materials production entails the production of special nuclear materials for use in nuclear warheads. The 1981 budget maintains normal rates of production of these materials. The defense nuclear waste management program currently provides temporary storage for all defense nuclear wastes. The program also supports research to develop permanent storage and isolation of these wastes. Funding proposed for 1981 continues the transfer of old defense wastes to new interim storage tanks, and supports increased research and development on waste storage. The naval reactor development program includes the research and development, design, procurement, and testing of prototype reactors for current and future naval vessels. Other Department of Energy defense research and development programs involve work on inertial confinement fusion, using intense laser beams; improved physical security at Department of Energy nuclear facilities; and arms control and verification technology. Defense-related activities,—In 1980, offsetting receipts are expected to exceed other outlays for the activities of the civilian departments and agencies that support national defense by $9 million. For 1981, net outlays of $159 million are estimated. These activities include emergency management, maintenance of strategic stockpiles, and the selective service system. The emergency management program recommended in 1981 includes planning for limited relocation during crises, and support of State and local planning to deal with possible future nuclear power plant emergencies. This activity is part of the responsibility of the Federal Emergency Management Agency, which was established in 1979. Outlays for the emergency planning, preparedness, and mobilization functions of the Federal Emergency Management Agency are estimated at $145 million in 1981 compared to $138 million in 1980. To meet our needs for critical raw materials that might be unavailable during wartime, the General Services Administration stockpiles strategic and critical materials. Sales and purchases are proposed in 1981 to adjust the inventory of the stockpile to current requirements. Outlays are estimated to be $170 million in 1981. Receipts from sales are estimated at $263 million in 1981. The Selective Service System is responsible for maintaining standby capability to meet defense personnel requirements in a future national mobilization. The budget requests $11 million in budget authority for 1981 and a 1980 supplemental of $1.4 million. NATIONAL DEFENSE 103 These funds will allow the system to improve its ability to respond efficiently to a wide variety of potential mobilization situations. CREDIT PROGRAMS—NATIONAL DEFENSE (In millions of dollars) 1979 actual Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans Net loan guarantees. 1980 estimate 1981 estimate 1 - 1 1 —11 - 1 0 - 1 0 - 1 1 - 1 0 -46 30 5 30 104 THE BUDGET FOR FISCAL YEAR 1981 INTERNATIONAL AFFAIRS National Needs Statement • Promote a stable international environment that will reduce conflicts, encourage worldwide economic progress, and bring greater respect for human rights, • Support the security and economic and political stability of allies and friendly governments. • Support the long-term development of poor countries with particular emphasis on reducing widespread poverty. • Assist our domestic economy by strengthening international economic institutions and promoting trade, • Advance American foreign policy through diplomacy and improved communication between the United States and other nations. The United States plays an active leadership role in international affairs, because our well-being as a nation depends, in part, upon events outside our borders. Our national needs in international affairs involve the protection of American interests abroad and the promotion of conditions throughout the world that advance those interests. U.S. foreign policy seeks a world that is at peace and abides by commonly accepted rules of international law, a world that provides opportunities for people everywhere to meet their basic human needs, and a world where there is respect for human rights and dignity. In the broadest sense, this country's international role is supported by its economy, its armed forces, its institutions, and the moral values and activities of its people. More specifically, the Federal Government's role in international affairs is carried out through formal diplomatic relations with 138 other governments, participation in the United Nations and 71 other international organizations and programs, economic and military assistance programs, contributions to international financial institutions, information and cultural activities, assistance to homeless refugees, and promotion of export opportunities. For 1981, the budget includes an estimated $16.9 billion in budget authority and $9.6 billion in outlays for these activities. • Foreign assistance programs are the most significant budgetary items in international affairs, with economic assistance estimated at $7.5 billion in budget authority and $6.2 billion in outlays, and military assistance estimated at $0.6 billion INTERNATIONAL AFFAIRS 105 and $0.8 billion, respectively. These activities involve the transfer of substantial resources to recipients abroad. • For 1981, a total of $2.1 billion in budget authority and $2.1 billion in outlays are requested for the conduct of foreign affairs and for foreign information and exchange activities. • International financial programs are estimated at $6.9 billion in budget authority and $0.7 billion in outlays in 1981. The estimates in this budget are designed to allow the United States to continue in its long-term leadership role in world affairs. While these totals take into account changing world events, recent happenings in Iran and Afghanistan may require further adjustments in spending for international affairs. These will be presented as soon as requirements become clearer and are covered by the allowance for contingencies. In carrying out our international responsibilities, the administration is also emphasizing ways to improve the effectiveness and efficiency of all U.S. international programs. For example, at the direction of the President, the Secretary of State and the Director of the Office of Management and Budget conducted a review of American employee positions in diplomatic missions abroad. To date, this review has resulted in the elimination of 626 positions from agency requests in the 1981 budget, including 359 currently filled positions. Similar efforts to achieve greater efficiency are discussed below. Foreign economic and financial assistance.—The mission of foreign economic and financial assistance is: • to provide humanitarian aid to needy people abroad; • to promote economic development; and • to support the foreign policy interests of the United States. The need for U.S. assistance to carry out this mission is increasing* A handful of developing countries, most of them with small populations, have benefited immensely from oil price increases. However, the majority of Third World nations have been hard hit not only by the energy situation but by rising prices of other products, and by reduced export earnings because of slow economic growth in the developed countries. Compared with the need for assistance, the $7.5 billion in budget authority and $6.2 billion in outlays proposed for 1981 for foreign economic and financial assistance is small. Therefore, much consideration has been given to improving the effectiveness of our assistance programs. 106 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: CONDUCTING INTERNATIONAL RELATIONS (Functional code 150; in millions of dollars) Major missions and programs 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate BUDGET AUTHORITY Foreign economic and financial assistance: International Development Cooperation Agency Multilateral development banks Public Law 480—Food aid Peace Corps Economic support fund/Peacekeeping operations Refugee assistance Offsetting receipts and other 1,821 2,515 806 99 1,989 3,234 840 106 2,225 1,666 1,129 119 2,435 1,602 1,152 130 2,704 1,625 1,198 142 2,321 227 —310 2,152 496 -306 2,106 567 -356 2,200 570 -398 2,200 535 -401 Subtotal, foreign economic and financial assistance 7,479 8,512 7,456 7,692 8,004 209 34 1,024 800 -274 110 28 669 236 -273 105 32 714 18 32 734 15 32 704 -258 -258 -253 1,793 770 594 526 498 (8,218) (8,502) Military assistance: Grant military assistance Foreign military training Foreign military sales credit Relocation of facilities (Israel) Offsetting receipts and other Subtotal, military assistance (9,272) (9,282) (8,050) Conduct of foreign affairs: Administration of foreign affairs International organizations and conferences. Other 813 479 25 821 515 35 995 519 41 1,084 551 41 1,183 581 43 Subtotal, conduct of foreign affairs.... 1,318 1,372 1,554 1,676 1,808 Foreign information and exchange activities 506 526 565 618 645 105 -2,327 1,338 700 6,850 3,863 3,452 -76 -77 88 -79 -80 -81 —2,298 1,961 6,859 3,756 3,370 -110 -90 -89 -88 -88 8,688 13,050 16,939 14,180 14,236 Total, foreign aid International financial programs: Export-Import Bank Foreign military sales trust fund (net) Internationa! commodity agreements Other Subtotal, international financial proDeductions for offsetting receiptsTotal, budget authority 107 INTERNATIONAL AFFAIRS NATIONAL NEED: CONDUCTING INTERNATIONAL RELATIONS—Continued (Functional axle 150; in millions of dollars) Ma/of missions and programs 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate OUTLAYS Foreign economic and financial assistance: International Development Cooperation Agency Multilateral development banks Public Law 480—Food aid Peace Corps Economic support fund/Peacekeeping operations Refugee assistance Offsetting receipts and other 1,374 683 976 94 1,575 926 1,169 104 1,737 966 1,153 116 1,928 1,193 1,190 126 2,158 1,297 1,275 138 1,755 166 -304 2,040 468 -308 2,056 534 -349 2,200 598 -397 2,200 514 -405 Subtotal, foreign economic and financial assistance 4,743 5,974 6,212 6,839 7,178 140 28 640 31 — 276 195 26 540 411 -275 150 28 515 318 -260 150 29 510 175 -260 95 29 510 100 -254 563 897 751 604 479 (5,306) (6,871) (6,963) (7,443) (7,657) Conduct of foreign affairs: Administration of foreign affairs International organizations and conferences. Other 785 495 30 867 487 35 927 535 39 1,042 543 40 1,166 573 41 Subtotal, conduct of foreign affairs.... 1,310 1,389 1,501 1,625 1,780 Foreign information and exchange activities 465 544 569 600 643 200 -1,434 1,054 1,200 1,230 1,193 1,822 354 -568 5 -566 -573 -580 -879 1,687 669 620 1,241 -110 -90 -89 -88 -88 6,091 10,401 9,612 10,199 11,234 -4 1,293 -7 2,420 50 -7 1,990 350 -7 2,270 500 -6 1,020 340 Military assistance: Grant military assistance Foreign military training Foreign military sales credit Relocation of facilities (Israel) Offsetting receipts and other Subtotal, military assistance Total, foreign aid International financial programs: Export-Import Bank Foreien IVlVrl£ll military llliillQIJ salps v v l W trust il UJl fund IUMU (net) ^IIWI/»***»*«* International commodity agreements ... Other Subtotal, international financial programs Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Overseas Private Investment Corporation Foreign military sales credit... Export-Import Bank 108 THE BUDGET FOR FISCAL YEAR 1981 A major step toward making these programs work better was taken on October 1, 1979, when the International Development Cooperation Agency (IDCA) was established to oversee all development assistance activities. The IDCA Director is responsible for improving both the coordination and the effectiveness of development programs. Two additional organizational changes have been made to improve other foreign economic assistance activities: • The Peace Corps has been given greater autonomy within ACTION in recognition of the uniqueness of this volunteer program. • A special coordinator for refugee affairs has been set up in the State Department to speed and improve the U.S. response to the growing problem of refugees in many regions of the world. The broad elements of the U.S. development strategy are clear. • To enable the developing countries to pay their own way as far as possible through exports, the United States will give special emphasis to their concerns as the recently agreedupon trade liberalizations go into effect. • Where development aid is required, the United States will support effective multilateral assistance institutions. • For bilateral programs, new kinds of solutions to development problems will be sought in a limited number of areas of activity where the United States possesses the greatest expertise. • Food aid will focus on the poorest countries and serve both humanitarian and developmental objectives. The Director of the International Development Cooperation Agency has direct responsibility for the policies and budgets of five development assistance programs: the Agency for International Development (AID), the new Institute for Scientific and Technological Cooperation, the Overseas Private Investment Corporation, voluntary, contributions to the more developmentally oriented international organizations and programs, and U.S. contributions to the International Fund for Agricultural Development, a multilateral lending entity. In addition, the Director shares responsibility with the Secretary of the Treasury for developmental aspects of U.S. participation in the multilateral development banks, and with the Secretary of Agriculture and other officials over the food aid program. 109 INTERNATIONAL AFFAIRS INTERNATIONAL DEVELOPMENT COOPERATION AGENCY (In millions of dollars) 1980 estimate 1981 estimate 1982 estimate 1983 estimate Budget Authority IDCA/AID, operating expenses Agency for International Development Institute for Scientific and Technological Cooperation. International organizations and programs Total, budget authority Outlays IDCA/AID, operating expenses Agency for International Development Institute for Scientific and Technological Cooperation Internationa! organizations and programs Overseas Private Investment Corporation International Fund for Agricultural Development Total, outlays 272 1,431 24 262 294 1,592 95 244 310 1,757 108 260 335 1,969 120 280 1,989 2,225 2,435 2,704 270 1,091 7 243 -56 20 285 1,185 32 247 — 52 40 309 1,319 59 254 -53 40 331 1,487 88 270 -58 40 1,575 1,737 1,928 2,158 The bilateral AID program enables the United States to finance technical assistance and capital projects that can make a unique contribution to overcoming development bottlenecks and serve as models for larger-scale undertakings by the multilateral banks. AID, using specially developed skills and technologies, focuses on meeting the basic needs of the poorest people abroad. Budget authority for AID is projected to increase from $1.4 billion in 1980 to $1.6 billion in 1981, and outlays are estimated to grow from $1.1 billion to $1.2 billion between the 2 years. The increased funding levels requested will enable AID to expand its programs in the traditional areas of agriculture, rural development, health, and population. The agency will also undertake new initiatives in the areas of energy, particularly for use of renewable energy sources, and of conservation of the scarce natural resources of less developed countries. In allocating its funds among countries, AID takes into account past economic performance and the human rights policies and practices of recipient countries. Consistent with the President's effort to reduce Federal employment, AID employment will decrease in 1981. The Institute for Scientific and Technological Cooperation (ISTC) will draw on the scientific and technological resources of the United States to design means of promoting development that are adapted specifically to the needs of the Third World. It will strengthen the institutional capacity of developing countries to conduct their own scientific research and applications and to make informed technological choices. ISTC will thus provide strong sup- 110 THE BUDGET FOR FISCAL YEAR 1981 port to AID, which will finance actual field applications of proven new techniques. More than half of the $95 million in budget authority requested for ISTC in 1981 will support the research program taken over from AID, much of which is devoted to agricultural research in a growing network of international centers. A portion of ISTC's funds will be used to finance cooperative projects with developing countries no longer eligible for AID programs because of their improved economic situation. Budget authority of $244 million is proposed in 1981 for contributions to 14 international organizations and programs that are supported voluntarily by many nations as effective ways to assist in developmental, humanitarian, and scientific endeavors around the world. Our voluntary participation in these multilateral organizations and programs complements similar bilateral activities and aids in accomplishing overall U.S. foreign policy and international development objectives. The United States also concentrates its voluntary funding of multilateral programs in those problem areas where bilateral assistance or domestic research cannot be as effective, such as global environment problems and weather research and monitoring. The largest contribution planned in 1981 is $140 million for the United Nations development program, which is the primary multilateral source of technical assistance to developing countries. A $15 million contribution to the new science and technology fund proposed by the 1979 United Nations Conference on Science and Technology for Development is also proposed. Included in the 1981 request are sizeable contributions to the United Nations Children's Fund (UNICEF), the Organization of American States, and the International Atomic Energy Agency, as well as contributions to several smaller scientific and developmental programs. The Overseas Private Investment Corporation is a self-sustaining program that provides political risk insurance, loan guarantees, and, on a selected basis, direct loans to U.S. firms investing in the developing countries. No budget authority will be needed in 1981; receipts are expected to exceed outlays by $52 million. The Corporation is giving particular emphasis to new methods of encouraging energy investment, and, in keeping with its legislative mandate, to stimulating and supporting small business investment abroad. The financing of capital projects and related technical assistance is provided by the multilateral development banks (MDBsX The World Bank and its affiliated programs and the regional African, Asian, and Inter-American Development Banks lent a total of $14 billion during their last completed fiscal year. The United States supports these institutions because of the quality of bank operations and because U.S. participation can encourage a greater shar- INTERNATIONAL AFFAIRS 111 ing of the cost by other wealthy countries. In a period of budget stringency, the potential multiplier effect of U.S. contributions through these institutions is particularly important. The $1.7 billion in budget authority proposed for 1981 consists of both new and overdue installment payments for replenishments of the banks' funds to which the United States has already agreed. The major new contribution being proposed is a $1.1 billion first installment toward a 1981-83 replenishment of the International Development Association (IDA), the World Bank affiliate that makes low interest loans to the poorest developing countries. The United States benefits from the cost-sharing features of this approach. The U.S. share of the total replenishment will be 27%, down from 31% 3 years ago. The U.S. share was 40% when IDA was initiated in 1960. The gradual shift in responsiblity for MDB financing to other countries has been achieved only after difficult negotiations. Other donors clearly expect the United States to pay its reduced share on time. Congressional reductions in appropriations requests for the banks have created problems in meeting pledges for U.S. installment payments. The 1981 budget request to make up these payments, which were scheduled to be made in previous years, totals $168 million, including $20 million for the World Bank. This request is smaller than those of previous years. For 1981 the budget proposes to change the budgetary treatment of callable capital subscriptions. Callable capital is provided to back up paid-in capital and reserves, and would be used only to meet liabilities to bondholders in the unlikely event that the banks' other resources are insufficient to meet those liabilities. Because the banks have nearly perfect repayment records on their loans to developing countries and have accumulated large cash reserves against any potential losses, the likelihood that U.S. callable capital will ever be called and lead to budget outlays is very remote. As a result, the practice of seeking budget authority for the full amount of callable capital overstates its likely outlay impact. In recognition of the contingent nature of U.S. liability under subscriptions to callable capital, the administration proposes enactment of program limitations, rather than budget authority, for control of callable capital. For 1981, this will reduce budget authority for the multilateral development banks to $1.7 billion, which is $1.1 billion less than the previous accounting system would have shown. The emphasis of Public Law 480 food aid is on meeting humanitarian needs and promoting economic development abroad. Over the past year, rising commodity prices have forced cutbacks in the volume of food originally planned within budget request levels. For 1980, the administration requested supplemental appropriations of 112 THE BUDGET FOR FISCAL YEAR 1981 $206 million, in part to meet minimum tonnage requirements mandated in authorizing legislation for food donations including relief shipments to Cambodia. Of this amount, $97 million remains unenacted, and is still pending before the Congress. For 1981, budget authority of $1.1 billion and outlays of $1.2 billion are proposed to permit shipment of 6 million metric tons of food, the same volume as in 1980. The administration is also proposing to build a food security reserve of up to 4 million metric tons for use in the food aid program. Funds for this initiative are included in the agriculture function. The Peace Corps will continue to supply needed personnel to developing countries, to support social and economic development, and to promote mutual understanding between the peoples of the United States and the Third World. The $119 million in budget authority proposed for 1981, $13 million above the 1980 level, will be used primarily to improve the quality of the program by upgrading training and expanding recruitment efforts. It will also allow a small increase in overseas volunteers and the initiation of programs in additional countries as opportunities arise. Economic assistance to carry out security-related objectives is provided through the economic support fund and peacekeeping operations. This assistance is provided in a variety of forms, including general budget and balance of payments support, the financing of capital projects and technical assistance, and payment of a share of the costs of U.N. peacekeeping forces in Cyprus. In recent years most of these funds have been committed to Egypt and Israel in support of U.S. efforts toward a peaceful Middle East political settlement. That support will continue in 1980 and 1981. Economic support fund financing is also being provided to assist our NATO ally, Turkey, in a time of economic difficulties and facilitate a peaceful settlement of hostilities in southern Africa. Because of recent Soviet actions in Afghanistan, which threaten Pakistan, the budget proposes a $100 million supplemental appropriation for Pakistan for 1980. Budget amendments will also be proposed for Pakistan for 1981. A supplemental appropriation to provide assistance to Nicaragua and Central America to support moderate, democratic reforms is also pending. Recent events have demonstrated the need for a rapid U.S. response to security-related requirements that cannot be anticipated. To provide for a timely U.S. response in such situations, the 1981 budget estimates include $50 million that is not allocated to any specific mission. These funds are appropriated to the President and will be held in reserve to meet unanticipated requirements. Total budget authority proposed for economic support fund and peacekeeping operations is $2.2 billion in 1980 and $2.1 billion in 1981. INTERNATIONAL AFFAIRS 113 Refugee assistance will increase since the number and needs of refugees continue to rise dramatically due to war, famine, and social and political disorder throughout the world. Major refugee movements are expected within Africa and from Indochina and Eastern Europe. The need for care and maintenance services abroad and for the transportation and resettlement of refugees from these areas will continue to be substantial in 1981. The administration proposes $567 million of budget authority for 1981 to enable the U.S. to continue to play a leading role in the international efforts to meet these needs. All U.S. assistance will be provided through the United Nations, the International Red Cross, other international organizations, and numerous American voluntary agencies. The United States provides assistance through the United Nations High Commissioner for Refugees for the care of large numbers of refugees in Southeast Asia and in Africa. In addition, the United States intends to continue to be the largest contributor to the United Nations Relief and Works Agency to aid in the care of Palestinian refugees. While the President will not determine the number of refugees to be resettled in the United States in 1981 until this summer, the budget requests funds to cover the costs of transportation and initial placement in the United States of 168,000 Indochinese refugees and 54,000 others, most of whom will come from the Soviet Union and Eastern Europe. Military assistance.—The international security assistance program is an essential instrument for achieving our foreign policy objectives. It consists of military assistance and security-related economic assistance (economic support fund and peacekeeping operations). These programs form the basis of this country's ability to assist allies and other friendly nations in maintaining necessary defense forces, and to promote economic stability in areas where the United States has special security interests. Military and security-related economic assistance are also used in conjunction with U.S. military bases and facilities overseas. These programs will continue to enable the United States to promote peace in the Middle East, demonstrate timely support of Southeast Asia, strengthen the NATO southern flank, help maintain a stable balance of forces on the Korean Peninsula, and assist Latin American nations in resisting threats to their independence and democratic institutions. They will be critical to the success of efforts to meet challenges posed by events in Afghanistan and elsewhere. Security assistance programs are under the policy direction of the Secretary of State and are administered by the Department of Defense and the Agency for International Development. 310-000 0 - 80 - 9 114 THE BUDGET FOR FISCAL YEAR 1981 Emphasis of military assistance programs continues to shift from grants to credit, a trend that reflects the improved ability to pay by some recipients and the congressional mandate to phase out grant military assistance. In this budget, grant military assistance programs are planned for three countries to complete outstanding commitments made in return for base facilities for U.S. Armed Forces. No grant military assistance programs are currently planned after 1981 but could be proposed in extraordinary circumstances. Outlays will continue to occur for several years from prioryear programs. Grants for foreign military training have been planned for 61 countries in 1981. This program provides training and exposure to the social, economic, and political institutions of the United States for members of foreign military establishments. The foreign military sales (FMS) credit estimates for 1981 include $2.6 billion in new commitments for loans to 35 countries, roughly $500 million above the 1980 level. Most of this increase is to assist Israel in meeting the costs involved in withdrawing from the Sinai Peninsula and to help modernize Egypt's military forces. Proposed loans valued at $2.1 billion would be made by the Federal Financing Bank and guaranteed by the Department of Defense using foreign military sales credit appropriations. The remaining $500 million will be in the form of a direct loan to Israel. However, since loan repayments will not be required, it will, in effect, be a grant. On-budget outlays for this program result only from direct loans and from payments of claims for defaults on prior-year guarantees. The budget reflects the effect of the 1979 Middle East peace package, which included $800 million in grants to help in replacing two Israeli air bases in the Sinai. Outlays associated with this activity will occur through 1983. In addition, the budget proposes a supplemental appropriation for 1980 of $10 million to provide loan guarantees for $100 million in foreign military sales financing to assist Pakistan to meet the increased threat resulting from events in Afghanistan. Budget amendments will be proposed to provide FMS credit and grant military training to Pakistan in 1981. Conduct of foreign affairs.—The most important resource in the administration of the foreign affairs of the United States is dedicated and competent officers and employees. Those people must be supported and their productivity augmented. Additional foreign service officers are requested to improve the reporting and analysis of events and trends from selected diplomatic missions abroad. Increasing consular workloads abroad require additional staff. Planned improvements in communications, admin- INTERNATIONAL AFFAIRS 115 istrative, and passport and visa issuance systems will make staff resources more productive and effective. Efforts will continue to improve the working and living space of employees abroad and to reduce expensive leasing costs. A new single pay structure is being developed for foreign service employees. It will more accurately compensate for each level of work responsibility, and better link those levels to comparable levels of the general schedule of the civil service. The necessary additional appropriations will be requested as soon as the new structure is completed. At the same time, this budget reflects reductions in certain marginal activities. At the direction of the President, 12 small consulates are being closed. The administration proposes to cease the issuance of nonimmigrant visas for citizens of 31 nations where such visas are not required of Americans and where there is little incidence of fraud in applying for visas. Membership in the United Nations and international organizations results from multilateral treaties, conventions, and agreements under which the United States assumes a legal responsibility to contribute an assessed share of organization operating costs. (The voluntary contributions to international organizations and programs discussed above under foreign economic and financial assistance are in addition to the assessed contributions discussed here.) Membership in international organizations allows the United States to participate as a responsible world leader in solving multinational problems. It further enables us to pursue our foreign policy goals in regional and world bodies that deal with a wide spectrum of international concerns, including peacekeeping, world economic problems, health, energy, trade, transportation, social justice, agriculture, and communications. Assessed contributions to international organizations, including United Nations peacekeeping activities, are estimated to require $519 million in budget authority for 1981 and $551 million in 1982. As the major donor to most international organizations, the United States continues to be concerned with matters of program growth and priorities, financial management, and program evaluation and management. The United States is especially concerned that obsolete and marginal activities be phased out so that new needs can be met at minimal cost. Thus, the United States proposes to support in most organizations only those budget increases needed to maintain the previous year's level of operation during the 1981-82 period. In only a very few cases of high-priority programs, such as international nuclear safeguard activities, the budget proposes increases of 2 to 3% in real program growth. The United States continues to place a high priority on United Nations peacekeeping activities in the Middle East and on efforts to bring about peaceful governmental transition in Namibia 116 THE BUDGET FOR FISCAL YEAR 1981 (Southwest Africa). Such peacekeeping operations and initiatives will continue to play an important part in U.S. efforts to assure international peace and security around the globe. In 1979 the Arms Control and Disarmament Agency contributed to successful negotiations of a second Strategic Arms Limitation Treaty (SALT II) with the Soviet Union. The agency's role in arms control negotiations and research continues to include major interest in strategic arms limitation, as well as in nuclear nonproliferation, arms trade restrictions, and defense analysis. Outlays of $18.5 million for 1981 are requested. Foreign information and exchange activities.—The International Communication Agency (ICA) conducts a variety of activities to build long-term relationships between the people and Government of the United States and those of other nations. The agency's staffs in 126 countries, with guidance and media products from Washington, operate information and cultural centers and libraries. They also maintain contact with government officials, journalists, and academic, professional, and cultural leaders to further the understanding of American society and policies. Through academic exchanges and sponsored visits of Americans abroad and foreign nationals to the United States, ICA provides selected individuals an opportunity to increase their international understanding, and to expand their personal and professional contacts. The agency's Voice of America, broadcasting in 38 languages, provides accurate news reports, portrays American society, and explains official U.S. policies. ICA also provides the President and other foreign policy officials with assessments of foreign public opinion, and its probable reaction to proposed U.S. policies. ICA activities are proposed to continue at essentially current levels in real terms through 1983, with modest increases planned for exchanges and Voice of America broadcasts to the Middle East. The Board for International Broadcasting makes grants to Radio Free Europe/Radio Liberty, which broadcasts in 21 languages to Eastern Europe and the Soviet Union. Amounts proposed in the budget will permit operations throughout the 1980-83 period at approximately the current annual level in real terms. International financial programs.—The mission of our international financial programs is to advance U.S. interests by improving the functioning of the international financial system and to facilitate U.S. participation in world trade. Since World War II, the international financial system has been strengthened by closer cooperation among governments. Nonetheless, problems and market deficiencies remain that require Government action to facilitate U.S. commercial exports and military sales. In addition, there is a INTERNATIONAL AFFAIRS 117 need to expand the resources of the International Monetary Fund (IMF) to enable it to support economic programs initiated by member countries to correct their balance of payments difficulties, and thereby foster global monetary stability. The members of the IMF have agreed on a 50% increase in IMF resources to take effect in calendar year 1980. The administration is requesting congressional approval of U.S. participation in this increase. At current exchange rates, the U.S. quota in the IMF would increase from $11 billion to $16.5 billion. In keeping with the President's policy to encourage exports, the Export-Import Bank's programs have increased substantially and planned lending levels are being maintained. The proposed lending levels will permit the Bank to supplement private sector financing and to meet the most important foreign official credit competition. The Export-Import Bank provides direct loans, refinancing of export credits, loan guarantees, and insurance in order to facilitate the export of U.S. goods and services. These programs support exports by: • assuming commercial and political risks that exporters or private financial institutions are unwilling or unable to undertake; • overcoming limitations in private sector U.S. export financing; • assisting U.S. exporters to meet foreign officially supported export credit competition; and • providing guidance in export financing. By concentrating on areas where private financing is not available and by meeting foreign competition on a case-by-case basis, the Bank helps improve the functioning of the international economic system and the efficient development of resources both at home and abroad. The Export-Import Bank's programs are generally intended to supplement private credit markets. Terms and conditions on use of its facilities are set at rates more favorable than those available in the private sector to counteract the special terms foreign governments provide to support their exporters. EXPORT-IMPORT BANK AUTHORIZATIONS ( h millions of dollars) 1978 actual 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate Direct loan commitments Discount loan commitments Guarantees and insurance commitments 2,927 497 3,825 650 4,188 520 4,400 570 4,750 600 5,200 650 3,952 5,016 7,815 8,893 9,800 10,750 Total commitments 7,376 9,491 12,523 13,863 15,150 16,600 Net outlays — 106 200 1,054 1,230 1,193 1,822 118 THE BUDGET FOR FISCAL YEAR 1981 In addition, the Export-Import Bank will guarantee up to $1 billion in both 1980 and 1981 in direct loans made through the Federal Financing Bank (FFB). There are several large export opportunities that could place a severe strain on the Bank's direct loan resources. The Bank will be able to finance additional exports by guaranteeing loans made by the FFB. A supplemental increase in the Export-Import Bank's program limitation for 1980 is therefore being sought. It is also anticipated that the Bank will make more extensive use of guaranteed financing through the Private Export Funding Corporation during 1980 and 1981 in order to meet the requirements for export finance on special terms. There is a one-time sharp increase in budget authority in 1981 because of changes in procedures for recording obligations and the inclusion of redemption of debt in the figures. These changes have no impact on the Bank's program levels or outlays. Foreign military sales trust fund.—U.S. law requires that sales of certain types of military equipment and services may be undertaken only by the Federal Government. Thus, this trust fund does not finance U.S. Government programs; rather, it is the vehicle through which these sales are made. In recent years, payments by foreign governments to this fund have been too high in relation to the amounts needed to make payments to contractors. This situation will be corrected in 1980 by slowing receipts from foreign governments. As a result, the fund is expected to be roughly in balance in 1981 and beyond. Tax expenditures.—A tax expenditure results from the deferral of taxes on one-half of the profits derived from the incremental sales of domestic international sales corporations (DISCs). The DISC provision, estimated to cost $1.5 billion in 1981, was established to provide an incentive to domestic firms to increase their export effort and to offset partially the perceived export advantages of other countries' tax systems. Americans living and working abroad may deduct living expenses in excess of the cost of living in the United States, with an extra $5,000 of deductions available for hardship areas. Tax expenditures for these benefits, estimated to be $600 million in 1981, are intended to correct for the perceived inequity resulting from high living costs abroad. This provision also has the effect of encouraging firms to maintain U.S. nationals abroad and of deepening our involvement in international economic activities. Except for certain tax-haven provisions, the income of foreign corporations controlled by U.S. shareholders is exempt from U.S. taxation until that income is distributed to shareholders. This deferral of taxes results in an estimated tax expenditure of $480 million for 1981. INTERNATIONAL AFFAIRS 119 CREDIT PROGRAMS—INTERNATIONAL AFFAIRS (In millions of dollars) Program Security assistance: Direct loans: New loans Repayments, sales and adjustments ( - ) 1979 actual 1980 estimate 1981 estimate 1,642 -739 1,615 -722 Net loan outlays 903 894 699 Loan guarantees: New loans Net loan guarantees 1,622 1,207 2,900 2,260 2,600 1,835 364 -265 291 -312 284 -342 Net loan outlays 99 -21 — 59 Loan guarantees: New loans Net loan guarantees 96 49 230 189 188 146 755 -144 850 -161 781 -180 610 690 601 1,629 — 1,321 2,634 -1,461 2,836 -1,504 309 1,173 1,332 4,591 1,002 5,237 1,255 6,207 1,800 9 -129 9 -133 I -105 -121 -124 Economic development credit: Direct loans: New loans Repayments, sales and adjustments { - ) Public Law 480—food aid: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Export-Import Bank: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans Net loan guarantees Other international assistance: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays 1,415 -716 -104 THE BUDGET FOR FISCAL YEAR 1981 120 GENERAL SCIENCE, SPACE, AND TECHNOLOGY National Needs Statement: • Expand scientific knowledge through support of basic research in all fields of science. • Promote technological innovation in industry. • Develop a greater understanding of the Earth, the solar system, and the universe through space exploration. • Develop and demonstrate practical, economic, and productive applications of space technology. The United States draws much of its vitality from a commitment to wide-range scientific inquiry and to the pursuit of technological excellence in industry and agriculture. The private sector plays a major role in assuring the strength, independence, and diversity of the Nation's science and technology. However, the long-range vigor of the national effort is a proper concern of the Federal Government, which must stand ready to support fundamental and broadly applicable research activities whose long-term benefits to society exceed the profits that can be made by particular industries and firms. Despite overall budget constraints, the administration is committed to increasing support for basic scientific inquiry and to helping advance the frontiers of technology in areas of general application. This commitment has been demonstrated by a policy of "real growth" for basic research in each of the budgets of this administration. The Federal Government now supports about 70% of the Nation's basic research and since 1977 Federal support has increased by about 40% (9% in real terms). Basic research is aimed at increasing our understanding of fundamental scientific principles that encompass a wide range of natural phenomena. Research on the laws of matter, of the universe, and on biological processes can provide the foundation for technological progress that is essential to maintaining the Nation's longterm prospects for industrial growth, agricultural productivity, a safe environment, medical advances, energy sufficiency and national security. The budget provides for nearly 3% real growth over 1980 in obligations for basic research for all scientific disciplines throughout the Government. Particular emphasis is placed on basic research in the materials and physical sciences, mathematics, and engineering. These disciplines have not previously shared as fully as others in basic research increases. Large increases are proposed for basic agricultural research to sustain the Nation's long-term agricultural GENERAL SCIENCE, SPACE, AND TECHNOLOGY 121 productivity. The budget also provides support, through the programs of the NSF, for: • Initiation of a 10-year ocean drilling program on the seaward slope of the Continental Shelf to provide scientific data about the Earth's crust and basic information that can provide a framework for subsequent resource assessment. This program would be financed and conducted in collaboration with industry. • Expansion of international science and technology activities, including increased scientific cooperation with the Peoples Republic of China. • Creation of a new program to upgrade research facilities at the Nation's most productive research universities. Federal Obligations (or Basic Research $ Bilions -6 5 Billions 6 - : A i l Other ; Department of k Defense > Department of ' Energy National Aeronautics : and Space Administration • National Science " Foundation . National Institutes ' of Health Fiscal Years 1 9 7 9 Actual 1980 1981 Estimate Estimate In an environment of scarce resources and intense worldwide competition, U.S. industry requires a strong technological base. In 1979, the administration established a framework of new policies and programs to encourage technological innovation throughout American industry, including measures to: • improve the dissemination of technical information to industry; • strengthen the patent system; 122 THE BUDGET FOR FISCAL YEAR 1981 • foster the development of small, innovative firms; • clarify antitrust policy to encourage joint industry ventures in research; and • encourage industrial innovation through Federal procurement policies. The budget supports specific activities to carry out this new emphasis, including: • increased support by the NSF of joint industry-university research teams leading to the advancement of industrial technology; • NSF and Department of Commerce support for research and development on technologies that are basic to the improvement of several industrial sectors; • increased support for the small business innovation program of the NSF to stimulate development of new processes and products to encourage private investments; and • initiation of a basic automotive research program in cooperation with industry. Other aspects of these programs are also described in the commerce and housing credit and transportation functions. The frontiers of technology and engineering are also advanced by the Federal Government's space activities, and range from the development of the Space Shuttle to better sensors for satellites. This budget builds upon 20 years of path-breaking Federal investment in space science and technology, providing funds to: • Complete development of the Space Shuttle, which will provide a reliable transportation system for ferrying large payloads to and from Earth orbit. • Initiate the development of an observatory in space to study gamma rays, leading to increased understanding of the nature and origin of the universe. • Improve satellite systems (such as the Landsat series) to obtain worldwide agricultural production and other natural resources information with no interruption in the flow of data to Earth. • Initiate the development of a national oceanic satellite system (NOSS) to provide global weather and ocean data for scientific, economic and national security purposes. • Initiate the development of advanced communication technology to provide a far more efficient worldwide communication system by increasing the useful range of radio frequencies. Most of these programs and initiatives are supported by the National Aeronautics and Space Administration (NASA), but other agencies, particularly the Departments of Commerce and Defense, GENERAL SCIENCE, SPACE, AND TECHNOLOGY 123 are increasing their space-related activities to take advantage of the Nation's 20-year investment in space. Other science and technology activities of the Federal Government are conducted by a variety of agencies to fulfill their program goals. Most of these activities are classified and discussed in other budget functions. Detailed information is provided in Special Analysis K, "Research and Development/' in the Special Analyses volume of the budget. The general science, space, and technology function includes only the research programs of the National Science Foundation (NSF), the general science programs of the Department of Energy (DOE) and the space activities of the National Aeronautics and Space Administration (NASA). Proposed outlays for this function are $6.4 billion in 1981, an increase of $0.6 billion or 9.4% over 1980. SCIENCE General science and basic research.—The programs that directly support the mission of general science and basic research are administered by the National Science Foundation and the Department of Energy. Outlays for this mission are estimated to total $1.6 billion in 1981, an increase of $150 million, or 10.6%, over 1980. National Science Foundation programs.—With the establishment of the National Science Foundation (NSF) in 1950, the Federal Government recognized that the Nation would benefit from increased support for basic research. The Foundation supports basic research in virtually all scientific disciplines. It also supports applied research in selected areas of national need, and science education at all levels. The budget proposes an increase in outlays for the NSF from $947 million in 1980 to $1,052 million in 1981. Budget authority is proposed to increase from $996 million in 1980 to $1,153 million in 1981, or almost 16%. In 1981, the additional funds proposed will allow the NSF to emphasize research related to long-term national problems, such as studies of the properties of materials and the formation and extraction of minerals. Proposed programs include investigations of the Earth's crust (by drilling near the Continental Shelf), basic automotive research, and computer science. Department of Energy general science programs.—An increase in outlays from $462 million in 1980 to $508 million in 1981 is estimated for research supported by the Department of Energy in high energy physics, nuclear physics, life sciences and nuclear medicine. The goal of the high energy and nuclear physics programs is to achieve a comprehensive understanding of the fundamental con- 124 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: INCREASING BASIC SCIENTIFIC KNOWLEDGE AND USE OF SPACE (Functional code 250; in millions of dollars) Major missions and programs BUDGET AUTHORITY General science and basic research: National Science Foundation programs Department of Energy general science programs Smithsonian scientific information exchange activities 1980 estimate 1979 actual 1981 estimate 1982 estimate 1983 estimate 914 996 1,153 1,185 1,278 431 472 * 523 * 525 * 504 * 2 Subtotal, general science and basic research 1,347 1,468 1,676 1,710 1,782 Space research and technology: Space flight Space science, applications, and technology Supporting space activities 2,433 1,224 383 2,847 1,415 437 3,183 1,547 463 2,920 1,698 624 2,750 1,878 620 Subtotal, space research and technology 4,040 4,699 5,193 5,242 5,248 -10 —3 —3 -3 -3 5,377 6,164 6,866 6,948 7,027 870 947 1,052 1,114 1,201 425 462 * 508 * 527 * 508 * Deductions for offsetting receipts Total, budget authority OUTLAYS General science and basic research: National Science Foundation programs Department of Energy general science programs Smithsonian scientific information exchange activities 2 Subtotal, general science and basic research 1,298 1,410 1,560 1,641 1,708 Space research and technology: Space flight Space science, applications, and technology Supporting space activities 2,217 1,153 383 2,745 1,322 416 3,013 1,434 439 3,055 1,635 599 2,816 1,846 627 Subtotal, space research and technology 3,753 4,483 4,886 5,289 5,289 -10 -3 -3 -3 -3 5,041 5,889 6,442 6,927 6,993 184 132 101 Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Supporting space activities *500 thousand or less. GENERAL SCIENCE, SPACE, AND TECHNOLOGY 125 stituents of matter and energy, the basic forces that govern their interactions, and their role in the properties and dynamics of nuclear particles. Considerable progress is now being made in understanding the fundamental constituents of matter called "quarks", the study of nuclear forces and the properties of nuclear matter under extreme conditions. In high energy physics, large accelerators will be used to build on recent major theoretical and experimental knowledge. Funds are requested to begin modification of the accelerator at Fermi National Laboratory to enable scientists to determine the existence of what are so far theoretical subatomic particles. Nuclear physics research in 1981 will take advantage of the new heavy ion research facility. A new accelerator system is proposed, to fill an important gap between existing lower energy accelerators and a new generation of large circular accelerators. Tax expenditures.—In addition to direct Federal funding of basic research, the tax code encourages private sector research and development, including basic research, by allowing expenditures for such purposes to be deducted as a current expense. The resulting tax expenditures are estimated at $2.0 billion in 1981. FEDERAL OBLIGATIONS FOR THE CONDUCT OF BASIC RESEARCH (In millions of dollars) Functional code and agency Programs in general science, space, and technology function: 250 National Science Foundation 250 Energy 250 National Aeronautics and Space Administration 1979 actual 1980 estimate 1981 estimate 730 292 814 324 952 357 513 538 581 1,535 1,676 1,890 1,576 172 362 257 77 36 25 20 10 30 1,728 198 431 289 76 39 14 32 1,840 236 523 324 78 44 36 25 19 58 Subtotal 2,566 2,855 3,184 Total 4,101 4,531 5,074 Subtotal Programs in other functions: 550 Health and Human Services 270 Energy 050 Defense 350 Agriculture 300 Interior 500 Smithsonian 370 Commerce 500 Education 300 Environmental Protection Agency 999 Other agencies 28 20 126 THE BUDGET FOR FISCAL YEAR 1981 Related programs.—As noted above, most of the Federal Government's basic research funds are allocated to other budget functions since they support other specific national needs or missions. The accompanying table shows total Federal obligations by agency for the conduct of basic research. It excludes funds for major facilities and tax expenditures. SPACE RESEARCH AND TECHNOLOGY This budget continues the administration's commitment to complete the development and initiate the operation of the Space Shuttle. The Shuttle's propulsion, thermal protection, and control systems are among the most complex challenges in the history of 20th century engineering. Despite the additional resources required to insure the success of the Shuttle, the administration continues to support a vigorous and balanced space program. Projects for further exploration and exploitation of space are planned to take advantage of the capabilities offered by the Shuttle. In addition to maintaining ongoing programs in space science, applications and technology development, the budget proposes several major new initiatives that are discussed below. Space flight—The National Aeronautics and Space Administration's (NASA) space flight programs sustain and improve the Nation's capabilities to provide space transportation facilities to government, industry, universities and foreign users. The administration is proposing outlays of $3.0 billion for these programs in 1981 compared to $2.7 billion in 1980, an increase of 10%. Outlays of $1.8 billion are estimated for the Space Shuttle program in 1981 and supplemental outlays of $0.2 billion for 1980 are proposed, compared to outlays of $1.6 billion for the program already approved by Congress for 1980. The Space Shuttle will be the world's first manned space transportation system capable of being reused routinely and allowing repair, service, and retrieval of satellites in space. The Shuttle is essential to exploit space effectively and maintain U.S. leadership in space throughout this century; to allow adequate advances in military capabilities to meet national security commitments; and to meet U.S. commitments to domestic and foreign users who have made significant investments based upon its availability in the early 1980's. The Shuttle is also expected to replace most U.S. expendable launch vehicles, resulting in cost savings for future civilian and military missions. The Space Shuttle is now approaching the critical final phase of development, with first flight scheduled for late 1980 and regular operations beginning in 1982. The substantial additional funding proposed for 1980 and 1981 is needed to permit a strengthening of GENERAL SCIENCE, SPACE, AND TECHNOLOGY 127 ongoing development efforts to overcome remaining technical problems to make possible a fully operational Shuttle system beginning in 1982. Space science, applications and technology.—Programs in this category include space exploration to study the solar system and the universe, and the development, launch, and operation of satellite systems for agricultural, geological, weather, and communication uses. Proposed outlays in 1981 are $1.4 billion, compared to $1.3 billion in 1980, and represent an increase of 8%. Programs in space science account for proposed outlays of $725 million in 1981, compared to $665 million in 1980. The administration is proposing the initiation of the development of a gamma ray observatory in 1981. This observatory will be placed in orbit using the Space Shuttle and will provide information on the nature of celestial phenomena providing clues about the nature and origin of the universe. Such information cannot be obtained by Earth-based observatories because of the absorption of gamma radiation by the atmosphere. The administration also proposes to continue other previously approved major activites in space science, including a mission to study the polar regions of the sun and their effect on the Earth's atmosphere and climate, a space telescope to observe distant galaxies, and a mission to explore the planet Jupiter. The estimated outlays for space applications are $470 million in 1981, an increase of 10% over 1980. The administration is proposing a national oceanic satellite system to be developed jointly by NASA and the Departments of Defense and Commerce. This operational demonstration system would provide global ocean data for use in marine weather forecasting and climate studies, marine transportation, and defense applications. The budget also proposes a program to investigate advanced technologies to utilize new radio-frequency regions for advanced satellite communications. The budget requests continued funding for ongoing programs such as the global agricultural production forecasting program using the Landsat series of satellites. Development of Landsat-D, the fourth satellite in this series, is continuing, leading toward a late 1981 launch date. Landsat-D will provide a major advance in the quality of remotely sensed Earth-resources data for a variety of applications. The administration is committed to assuring the continuity of Earth-resources remote-sensing capability through the 1980's. The Department of Commerce, through its National Oceanic and Atmospheric Administration (NOAA), has been designated to manage all civilian operations of remote sensing from space. An interagency board will be created to provide Federal coordination 128 THE BUDGET FOR FISCAL YEAR 1981 of these activities. Special emphasis will be placed on developing pricing policies for cost sharing by user agencies and on involving the private sector in civil remote sensing operations, such as surveys of Earth's resources from space. These administrative changes are expected to provide more efficient and successful management of these national efforts. Budget proposals would maintain other space research and technology programs, including basic research in materials, structures, and propulsion. Supporting space activities.—The administration proposes outlays of $439 million in 1981 to provide tracking and data relay support to the entire NASA flight program. This represents an increase of $23 million or 6% over 1980. These activities include maintenance and improvement of satellite tracking stations, antenna systems and computer facilities to extract information from the signals received from satellites. CREDIT PROGRAMS—GENERAL SCIENCE, SPACE AND TECHNOLOGY (In millions of dollars) Program Satellite leases: Loan guarantees: New loans Net loan guarantees 1980 estimate 1979 actual 186 186 1981 estimate 132 132 101 101 Credit programs.—Long-term lease commitments to finance the construction and acquisition of NASA satellites totaling $152 million were made in 1979. No further lease commitments are expected under this program in 1980 or 1981. Use of existing commitments results in loan guarantees and outlays by the Federal Financing Bank (FFB). ENERGY 129 ENERGY National Needs Statement: • Mobilize the Nation's resources to protect the Nation's energy security and independence. • Promote energy production and conservation through pricing policies that reflect the real cost of energy. • Protect the Nation from being harmed by disruptions in energy supplies. • Develop renewable sources of energy to sustain long-term economic growth. • Increase the safety of nuclear power production and assure the safe, long-term disposal of nuclear waste, while limiting the potential for international proliferation of nuclear weapons. • Protect the environment while achieving the Nation's energy goals. The fundamental aspects of the Nation's energy problem are stark and unpleasant: as cheap supplies of oil and natural gas dwindle, the price that we pay for all forms of energy will increase. Since World War II, America's economic growth has been fueled by inexpensive, readily available crude oil. During the 1960's and early 1970's, world per capita energy consumption grew at Zl/z% per year. The ready availability of oil and natural gas helped to carry the American and the world economy to record levels of prosperity. The situation changed markedly in 1971 when proven domestic oil resources began to decline and domestic oil production reached a peak of 11.3 million barrels per day. Since then, we have rapidly come to rely on imported crude oil as domestic supply failed to meet the increase in demand arising from economic growth. Net imports of petroleum products more than doubled between 1971 and 1978, from 3.7 to 7.9 million barrels per day. In 1973, members of the Organization of Petroleum Exporting Countries (OPEC) demonstrated their ability to control world oil supply by imposing an embargo during the Arab-Israeli war. Since 1973, sharp increases in oil prices and restrictions in supply have sent shocks through the world economy that have forced the United States and the other major oil importing nations to struggle with the new realities of the world oil market. OPEC price increases since 1973 have raised the average price of imported oil to over $28 per barrel as of January 1980, more than 10 times the price in 1973. 310-000 0 - 8 0 - 1 0 130 THE BUDGET FOR FISCAL YEAR 1981 In 1973, a two-tier system of price controls was applied to domestic oil prices, holding oil that had already been discovered ("old oil") under price controls, and allowing newly discovered domestic oil and imports to be sold at the market price. Oil price controls did hold down the prices of petroleum products in the United States, but also produced unintended consequences. The control system had the effect of holding the average domestic price of oil, including imports, to a level well below that charged by OPEC. Therefore, the price control system subsidized oil consumption. Price controls also reduced incentives to increase domestic oil production, so higher demand for oil was met only by increased imports. Accelerating OPEC prices led to increasing pressure on the Nation's balance of payments and worsened an already severe rate of domestic inflation. As long as the United States continued to subsidize oil consumption through price controls, massive oil imports threatened the strength and stability of the economy. Shortly after taking office in 1977, the administration proposed the first parts of a national energy plan to encourage conservation, foster conversion from oil to coal, and reduce oil imports. In 1978, after many months of debate, the Congress passed the Energy Tax Act, the Natural Gas Policy Act, the National Energy Conservation Policy Act, the Powerplant and Industrial Fuel Use Act, and the Public Utilities Regulatory Policies Act. Taken together, these laws (also known as the National Energy Act) incorporated many of the administration's proposals. The basic foundation of a rational response to the new realities of energy had been set in place. A few months after the National Energy Act (NEA) was enacted, the OPEC cartel began a series of new price increases that have, in the course of the past year, more than doubled the official OPEC oil price. This sudden increase seriously worsened inflation in the United States and made it clear that the gradual reduction of oil imports envisioned by the NEA would not be enough to protect the American economy from the prospect of continued, rapid increases in OPEC oil prices. In April 1979, the administration announced a plan to decontrol the price of domestic crude oil in conjunction with a windfall profit tax on domestic oil production. The decontrol plan will allow domestic oil held under price controls to rise gradually to the world oil price by September 30, 1981, providing increased incentives for domestic production and conservation. As the prices charged by domestic producers rise as a result of decontrol and increasing world oil prices, the windfall profit tax will capture a portion of the unearned revenues that would otherwise go to the oil industry. The receipts of the windfall tax will make resources available to assist those low-income families least able to pay increasing energy prices, finance investments to ENERGY 131 increase the energy efficiency of our transportation system, and greatly expand energy supply and conservation programs. The administration's initiative places maximum emphasis on oil import reductions by allowing domestic oil prices to reach world levels and ensuring that a significant portion of the excess profits caused by rising world oil prices and decontrol will be invested in domestic alternatives to foreign oil. The 1979 proposals included an Energy Security Corporation (ESC) to enable the United States to develop the capacity to produce synthetic fuels that would directly offset foreign oil imports; an Energy Mobilization Board to assure that critical energy facilities receive prompt attention at every level of government; a permanent ceiling on oil imports of 8.5 million barrels per day; a program to encourage utilities to switch from oil to coal; assistance for additional conservation and the accelerated use of solar and other renewable energy sources in residences and commercial establishments; and increased research and development into the use of coal. We have seen the risks of being unprepared for rapid changes in energy supplies and prices; we must now move forward to reduce Effect of Administration's O i l Import Reduction Program Millions of Ban«!> p«r Day 14 0' 1970 Calendar Yean 14 75 *80 Projected '85 '90 •0 THE BUDGET FOR FISCAL YEAR 1981 132 NATIONAL NEED: ENERGY (Functional code 2/0; in millions of dollars) BUDGET AUTHORITY Energy supply: Promotion of domestic production: Synthetic fuels promotion: Existing law Proposed legislation Biomass (proposed) Solar bank (proposed) Research, development, demonstration, and applications: Solar Other renewable resources Fossil: Existing law.. Proposed legi Nuclear fission: Existing law Proposed legislation Other technology Direct production (net): Uranium enrichment Petroleum reserves Power marketing Subtotal Energy conservation: Technology development Conservation grants Utility oil use reduction (proposed) Public information and other Residential and commercial conservation (proposed) Subtotal Emergency energy preparedness: Strategic petroleum reserve: Existing law Proposed legislation Subtotal Energy information, policy, and regulation: Energy information and policy Regulation: Federal Energy Regulatory Commission... Economic Regulatory Administration Nuclear Regulatory Commission Alaska gas pipeline inspector Administrative expenses (Department of Energy) Subtotal Deductions for offsetting receipts Total, budget authority Footnote at end of table. 1981 estimate 1980 estimate 1979 actual 1982 estimate 1983 estimate 2,208 17,792 50 35 41 150 45 150 37 150 514 541 602 529 652 620 680 643 728 680 784 895 50 1,165 50 1,717 50 1,462 50 1,218 925 859 899 490 1,227 300 578 827 872 875 -21 -364 -116 1,051 —647 14,892 87 -1,900 -99 560 —2,311 -115 302 -2,416 -122 3,046 39,562 2,519 3,150 2,645 229 377 297 458 1 11 299 568 25 50 323 568 1,030 54 347 608 2,420 58 110 390 600 700 oo --J Major missions and programs 1,332 2,575 4,133 9 2,404 15 2,191 122 4,274 140 3,008 9 2,419 2,313 4,414 82 129 142 141 141 54 99 327 72 198 417 11 76 162 468 26 77 126 513 38 78 110 523 32 215 259 337 363 363 5 611 3,008 * 777 1,086 1,211 1,258 1,247 -59 -72 -74 -74 -74 7,382 41,461 7,408 9,222 12,365 ENERGY 133 NATIONAL NEED: ENERGY-£ontinued (Functional code 270; in millions of dollars) Major n i t o n s aod programs OUTLAYS Energy supply: Promotion of domestic production: Synthetic fuels promotion: Existing law Proposed legislation Biomass (proposed) Solar bank (proposed) Research, development, demonstration and applications: Solar Other renewable resources Fossil: Existing law Proposed legislation Nuclear fission*. Existing law Proposed legislation Other technology Direct production (net): Uranium enrichment Petroleum reserves Power marketing Subtotal Energy conservation: Technology development Conservation grants Utility oil use reduction (proposed) Public information and others Residential and commercial conservation (proposed) Subtotal Emergency energy preparedness: Strategic petroleum reserve-. Existing law Proposed legislation Subtotal Energy information, policy, and regulation: Energy information and policy Regulation: Federal Energy Regulatory Commission... Economic Regulatory Administration Nuclear Regulatory Commission Alaska gas pipeline inspector Administrative expenses (Department of Energy) Subtotal Deductions for offsetting receipts Total, outlays Footnote at end of table. 1979 actual 1980 estimate 1981 estimate 1983 estimate 1982 estimate # * 155 12 50 29 53 16 41 130 60 45 146 100 37 150 437 509 617 537 656 645 674 678 724 683 740 931 50 939 50 1,374 50 1,521 50 1,207 671 1,269 -100 583 1,048 200 608 858 -36 872 890 -98 902 43 -350 1,643 245 —443 1,564 105 -1,823 1,825 214 -2,324 1,867 162 -2,442 1,612 4,900 5,499 4,493 4,478 4,291 176 76 246 336 1 11 278 481 22 34 309 648 979 54 339 692 2,321 58 14 357 504 727 252 608 1,172 2,494 4,137 1,021 767 3 1,294 11 2,912 14 3,850 122 1,021 770 1,306 2,926 3,973 82 127 144 140 140 50 82 309 70 172 307 9 76 176 476 25 77 134 474 36 78 112 484 34 219 261 314 325 325 1,211 1,186 1,173 742 946 —59 -72 -74 -74 -74 6,856 7,751 8,107 11,010 13,499 134 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: ENERGY—Continued (Functional code 270; in millions of dollars} Major missions and programs ADDENDUM Off-budget Federal entity: Rural electrification and telephone revolving fund: Budget authority Outlays Energy Security Corporation: Budget authority MEMORANDUM—Attribution of Federal Financing Bank outlays Rural electrification and telephone revolving fund Tennessee Valley Authority 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 134 - 4 2,320 4,160 684 4,745 16 2,400 MOO 5,342 6,779 *$500 thousand or less, those risks and restore confidence to our economy. The administration's energy strategy acknowledges the changed realities of energy and seeks to prepare the Nation for continued change in the future. The administration's energy strategy and programs are grounded in the belief that we must move forward on many fronts to develop whatever means are needed to establish our security and independence from foreign sources of energy. We cannot decide now to pursue but one energy path or another; we must instead pursue many alternatives in order to secure our energy future and restore confidence in our economy. A broad energy strategy has been needed to prepare us for the next decade and beyond. The Nation now has such a strategy, and this budget supports it. The administration's national energy strategy as set forth in the 1977 and 1979 initiatives and enacted by Congress now comprises a broad-based program to reduce the Nation's dependence on imported oil. The strategy and the program have four basic elements: expanded efforts to encourage conservation of energy throughout the domestic economy; a rational pricing policy for depletable oil and natural gas; a windfall profit tax to capture a portion of the revenues that will accrue to the oil industry as a result of decontrol; and programs to increase our domestic supplies of energy. The administration's overall energy program should reduce projected 1990 oil imports from 13 million barrels per day to 4.5 million barrels per day. Such a reduction in the level of imports will stem the flow of dollars overseas, improve our balance of payments, and provide renewed confidence in the American economy. ENERGY 135 In addition to direct spending programs, a variety of tax expenditures, designed to increase domestic energy production and stimulate conservation, significantly affect budgetary resources by reducing tax receipts. It is estimated that receipts will be lower by $5.4 billion in 1980 and $6.6 billion in 1981 due to these tax expenditures. Tax expenditures are discussed below and explained in more detail in the Special Analyses volume of the Budget. In addition to the energy programs included in this function, the administration has proposed programs to assist those low-income families most affected by rising energy prices. The Congress has enacted a program of special energy allowances and an energy crisis assistance program, which are discussed in the income security function. In addition, the administration has proposed programs to increase the energy efficiency of the Nation's transportation system. These programs are discussed in more detail in the transportation function. A variety of other Federal spending programs are related to meeting national energy needs, but budget estimates for them are classified elsewhere in the budget. These programs include: • Department of the Interior programs for oil, gas, and coal, oil shale, and geothermal leasing; coal mining research and development; surface mining reclamation; and environmental assessments of energy minerals (classified in the natural resources and environment function). • Department of Agriculture programs promoting gasohol and energy conservation for rural communities (classified in the agriculture function). • Department of Commerce programs for coastal energy impact assistance, an inland energy assistance program financed by the Department of Energy and administered by the Department of Agriculture (classified in the community and regional development function). • Department of Transportation programs on pipeline safety (classified in the transportation function). • Department of Labor mine health and safety programs (classified in the health function). • Assistance to developing countries and multilateral lending institutions to promote energy production overseas (classified in the international affairs function). Energy supply.—Even if we conserve enough energy to substantially reduce total demand, we will need increased supplies of energy to fuel our transportation system, our industrial base, and our homes. While we seek to expand traditional sources of domestic 136 THE BUDGET FOR FISCAL YEAR 1981 supply, we will probably never again be able to meet our total demand for energy from domestically produced oil and natural gas. Coal will become more and more important, and new and unconventional sources of energy must be discovered and developed as part of our strategy to reduce imports of foreign oil. As a result, energy supply spending has grown rapidly from 1977 to 1981, and the relative emphasis among the various supply programs has changed over that same period in order to assure that our long-term energy supply needs are met. Spending on solar and fossil energy programs now dominates the supply area of the energy budget, whereas nuclear fission development was the principal government objective in 1977. The programs that support the overall energy supply mission fall into three main categories: • promotion of production by the private sector of synthetic fuels and other domestic energy resources; • support of research, development, and demonstration of new or improved technologies to produce energy from domestic sources; and • direct Federal energy production. Government spending for energy supply programs is designed to complement the billions of dollars invested each year in the private economy for exploration, research, development, production, and delivery of energy. Budget authority of $2.5 billion is proposed for energy supply in 1981, primarily for research, development, and demonstration. Budget authority in 1980 is $39.6 billion, but this amount is not comparable with the 1981 level because it includes two unusual amounts—$15.0 billion of new borrowing authority for the Tennessee Valley Authority (TVA), and $20 billion for synthetic fuels promotion. Periodically, the TVA seeks borrowing authority to finance new generating capacity; this is later repaid through revenues from TVA power customers. For synthetic fuels promotion, the Congress has already provided $2.2 billion and the budget requests an additional $17.8 billion in 1980 to cover the activities of the Energy Security Corporation in the first phase of its program to support synthetic fuels production. Adjusting for these two large transactions, and for offsetting receipts, the budget proposes an increased overall program level for energy supply in 1981 compared with 1980. Excluding major receipt increases, outlays for energy supply are estimated to be $6.3 billion in 1981 compared with $6.0 billion in 1980. In addition to these budget outlays, increased tax expenditures for energy supply provided by the National Energy Act of 1978 and the ENERGY 137 Principal Energy Supply Programs, including Tax Expenditures* Actoal ' Powwt M a A t r t f At*nd*i w*J M i met PtOffam* o n Principal Elements of Energy Supply Programs' 4 Pow*t Mail*ti*fl A»«ttlti <HhJ Mfirtw FWfrriait «r* £xc1*4KL E*Hm«t« 138 THE BUDGET FOR FISCAL YEAR 1981 proposed energy security program are estimated to reduce receipts by $0.6 billion in 1981. Total tax expenditures for energy supply are estimated to be $5.2 billion in 1981. Taken together, these sources of financial support for energy supply provide a vigorous overall Federal effort to encourage energy supply from domestic resources. Promotion of domestic production,—The administration has proposed new programs to encourage the production and use of domestic energy supplies in order to help reduce the level of U.S. oil imports. These objectives are promoted through the Energy Security Corporation, the Energy Mobilization Board, energy impact assistance, the biomass and alcohol fuels program, and the solar energy and conservation bank. The budget provides for the initiation of the Energy Security Corporation (ESC) in 1980. The ESC will be the primary vehicle for synthetic fuels promotion in the United States. Because of uncertainties about the price and availability of oil in the future, it is appropriate for the Federal Government to absorb some of the risks that are associated with establishing a synthetic fuels industry. It is proposed that the Corporation be authorized to make direct loans, and enter into loan, price, and purchase guarantees for a variety of synthetic fuels produced by private firms under contract. The ESC is proposed as an off-budget Federal entity to allow it to operate with autonomy. However, budget authority and outlays reflecting the Corporation's activities will be included in the budget totals. The Corporation will operate using phased appropriations as provided by the Congress. The first phase of Corporation activities is to be financed by a multiyear appropriation of $20.0 billion. To give an early start to meeting the Nation's synthetic fuels goals, the Congress appropriated $2.2 billion to the Department of Energy (DOE) in 1980 to support synthetic fuels production. The administration proposes that the unobligated balance of this amount be made available to the ESC once it is established. In addition, the budget requests a supplemental appropriation of $17.8 billion for the Corporation in 1980. Since most of the Corporation's activities are expected to involve price, purchase, and loan guarantees that are contingent on the price of oil, its outlays are estimated to be only $12 million in 1980 and $16 million in 1981. Corporation outlays are expected to grow substantially in future years as significant volumes of synthetic fuels begin to be produced. One of the major impediments to increasing production from domestic energy supplies is the delay caused by regulatory procedures applied to proposed energy projects at all levels of govern- ENERGY 139 ment. The establishment of the Energy Mobilization Board will assure that critically needed energy facilities receive prompt action by regulatory agencies at each level of government. The Board will be responsible for designating critical energy projects, establishing timely schedules for the completion of permit decisionmaking, and ensuring compliance. A supplemental request for 1980 and a budget amendment for 1981 will be proposed later for the initial activities and operation of the Board. To harness a portion of the country's agricultural resources for energy purposes, the administration has proposed a 10-year program of outlays, tax expenditures, loans, and loan guarantees to promote conversion of grain, farm residues, and other biomass into synthetic fuels such as ethyl alcohol and gasohol. The budget proposes a 10-year, $3 billion credit program, providing $300 million annually for small and medium sized biomass facilities. The budget also reflects an additional 10% investment tax credit for liquid and gaseous fuels produced from biomass and exemption from the Federal gasoline tax for gasohol, as proposed by the administration and enacted into law. With the enacted and proposed initiatives, the production and use of alcohol for gasohol are expected to expand rapidly. To encourage the use of solar technology in residential and commercial buildings, the administration proposes creation of a solar energy and conservation bank within the Department of Housing and Urban Development. The bank would provide subsidies to lenders who make long-term, below-market rate loans to finance the use of solar energy systems. Budget authority of $35 million in 1980 and $150 million annually from 1981 through 1984 are proposed, assuming enactment of authorizing legislation. A similar program, classified in the conservation subfunction, provides subsidies to lenders for conservation loans. Budget authority of $100 million in 1980 and $300 million in 1981 is requested for the conservation program, which is expected to provide a total of $5.8 billion in direct subsidies between 1980 and 1990. Research, development, demonstration, and applications programs.—Energy research, development, demonstration and applications programs can provide new and improved technologies that will permit the greater use of domestic energy resources in a safe and environmentally acceptable manner. Rising energy prices, tax credits, and regulatory incentives encourage private development and production of new and improved energy technologies that use domestic energy resources. Federal support seeks to complement the work of the private sector by supporting longer-term, high-risk Federal research, development, and demonstration programs. Fed- 140 THE BUDGET FOR FISCAL YEAR 1981 eral programs support technologies such as solar, geothermal, fossil, fission, and fusion. Most Federal energy research is funded by the Department of Energy, but other agencies are also involved. The administration is strongly committed to the belief that solar energy can, over time, make a significant contribution as a clean and renewable source of energy. The President announced on June 20, 1979, a national goal of deriving 20% of the Nation's energy from solar sources by the year 2000. To assist in achieving this goal, the administration is proposing research, development, and demonstration projects and tax credits for solar applications. Total budget outlays for solar development and application, including programs not in this function, are estimated to reach $1.1 billion in 1981, an increase of $235 million over 1980. In addition, the revenue loss associated with tax expenditures for solar energy is expected to be $307 million in 1981, almost $100 million more than in 1980. Thus, the total Federal solar effort will exceed the 1980 level by more than 30%. Department of Energy outlays for direct solar and solar-related programs are expected to increase from $617 million in 1980 to $656 million in 1981. In longer term research, emphasis will be given to photovoltaics to develop the means to produce electricity economically directly from solar energy. Further efforts will also be undertaken to develop improved processes to convert organic wastes and crops to fuels, to convert solar energy to heat energy and electricity, and to convert the energy of the wind and the oceans into useful energy. Near-term efforts include development and demonstration projects in passive solar facilities, advanced cooling methods, and process heat. The budget also requests funds for the construction of a new 300 acre facility for the Solar Energy Research Institute at Golden, Colo. In addition to the Department of Energy, other Federal agencies encourage the use of solar technologies in pursuit of their missions. This approach takes advantage of the unique character of many solar technologies, which are often especially suited to small, decentralized applications. These efforts will assist significantly in meeting the overall Federal goal of stimulating a vigorous solar industry. Additional stimulus for solar energy use will result from the National Energy Act and the oil import reduction program, which make tax credits available to consumers and businesses to help defray the high initial cost of solar equipment. ENERGY 141 OUTLAYS AND TAX EXPENDITURES FOR SOUR ENERGY DEVELOPMENT (In millions of dollars) 1980 estimate Outlays for solar energy: In the energy function: Longer-term research and development Demonstrations and applications Solar energy and conservation bank Biomass loans Other solar related Subtotal In other functions Total outlays for solar energy Tax expenditures for solar energy Excise tax exemption for gasohol 1981 estimate 447 170 29 50 55 460 196 130 41 80 751 907 128 207 879 1,114 208 31 307 48 Other renewable energy resources include magnetic fusion, geothermal, and hydroelectric energy from small dams. The magnetic fusion program has grown rapidly since 1977, reflecting the administration's belief that fusion represents one of the Nation's most important long term energy options. The program is directed at determining the technical and economic feasibility of producing energy through a controlled thermonuclear reaction, which has the potential of providing a relatively clean and limitless source of power in the next century. It is expected that technical feasibility will be demonstrated within the next 3 to 4 years as a result of major experiments already in progress. The Department of Energy is also assessing other fusion concepts. The 1981 budget provides for $471 million in outlays, an increase of $90 million over 1980. Ultimately, a single concept will be chosen for a prototype fusion power reactor, the forerunner of commercial fusion power reactors, which would produce more energy than it consumes. The objective of the geothermal program is to encourage the development of hot underground brines and deep deposits of hot brines mixed with natural gas as useful energy sources. A longerterm goal is to develop the Nation's large reserves of thermal energy stored in hot underground rock formations. Outlays of $155 million are proposed for 1981. The budget also supports efforts to help identify and mitigate environmental and regulatory barriers that inhibit the use of domestic geothermal resources. For the development of hydroelectric power from small dams, the primary Federal role of granting permits and licensing will be augmented through programs of the Department of Energy that THE BUDGET FOR FISCAL YEAR 1981 142 finance feasibility studies, cost-sharing for commercial demonstrations, and a limited amount of engineering development and assessment. Fossil fuel programs have grown dramatically since 1977 primarily because of the administration's emphasis on the increased use of coal, America's most plentiful energy resource. The major new initiative in the administration's fossil energy strategy is the Energy Security Corporation. Most of the resources for the ESC will be directed to assisting private industry in financing synthetic fuel production facilities using existing technologies. The goal of this Corporation will be to create 1.75 million barrels per day of synthetic fuels and unconventional natural gas supplies by 1990. In addition to the ESC, a variety of other programs are proposed. These include oil shale and unconventional gas production tax credits, and an aggressive research program on fossil fuel energy technologies. OUTLAYS AND TAX EXPENDITURES FOR FOSSIL ENERGY (In millions of dollars) 1980 estimate Outlays for fossil energy: In the energy function: Energy Security Corporation Department of Energy research, development and demonstration Subtotal In other functions: Leasing programs Coal mining research and development Surface mining reclamation Subtotal Total, outlays New tax expenditures for fossil energy (revenue loss) 1 1981 estimate 12 1,216 16 1,215 U28 IJZX 240 51 116 267 60 150 407 477 1,635 1J08 Ill 235 'Since 1977. The principal Federal support for increasing domestic fossil energy supplies is provided through the research, development, and demonstration programs of the Department of Energy. Outlays for fossil energy programs are estimated to be $1.7 billion, an increase of $73 million over 1980. The programs are aimed at (1) accelerating the use of coal; (2) increasing the production of domestic oil and gas; and (3) developing technologies that convert abundant domestic energy resources such as coal and oil shale to synthetic liquid and gaseous fuels. The budget proposes $275 million in outlays for continuation of programs to develop technologies that allow coal to be used more efficiently and cleanly. Included in this area are new combustion ENERGY 143 systems such as fluidized bed combustion and the direct production of energy from coal (magnetohydrodynamics), new power generation systems such as high-temperature turbines and fuel cells, and improved environmental control technologies such as better scrubbers and precombustion coal cleaning. In 1979, the administration proposed several initiatives, including tax credits and pricing incentives, to accelerate production of oil, gas and oil shale. To complement market incentives, the budget includes $95 million in outlays to accelerate technologies that would tap our large reserves of unconventional natural gas and unrecovered oil and would develop our vast oil shale deposits. In view of the substantial technical ability of the industry and the existence of strong financial incentives, the funding requested in this area continues the trend initiated last year of developing basic scientific and engineering principles rather than field demonstrations of practical technology. While the ESC will be responsible for financing commercial synthetic fuel production facilities, the Federal Government's development and demonstration of these technologies will continue to be the responsibility of the Department of Energy. The budget both supports a number of important developmental synthetic fuel plants and expands basic and applied research in synthetic fuels technology. The budget requests $431 million in budget authority for initiating construction of two demonstration plants for converting coal into clean solid and liquid fuels using solvent refined coal technology, and for constructing a demonstration plant for converting coal into pipeline-quality gas. The budget also supports two large pilot plants for converting coal to liquid fuels using the donor solvent and H-coal processes. The nuclear fission programs continue the development of new technologies related to all aspects of nuclear power: resource assessment, enrichment, reactor technology, and waste management. The program also provides a technical base in support of the administration's nuclear nonproliferation policy. Since 1977, the budget for nuclear research and development programs has been altered significantly in order to fit better into the administration's overall national energy policy. In the past, nuclear programs concentrated on the development of new fission technologies for the distant future, such as breeder reactors, with less emphasis on solving the current problems of nuclear power. The administration believes that the current problems must be solved, since nuclear power is an important energy option for the United States. Therefore, the administration has placed increased emphasis on waste management as a problem that must be solved to maintain a strong nuclear power industry in this country, has 144 THE BUDGET FOR FISCAL YEAR 1981 recognized the need for technical improvements in commercial light water reactors, and has concentrated on fuel enrichment techniques that will lower the cost of nuclear-generated electricity. Increases to achieve these objectives have been offset by reduced emphasis in this and past administration budgets on advanced reactors and reprocessing technology. In this budget, the administration proposes to further change the emphasis of fission programs in three ways. The first change is a decreased emphasis on alternative reactor concepts. Work on the high-temperature gas cooled reactor and the gas cooled fast reactor are proposed for termination in 1981. The second change in the program comes in response to the accident at Three Mile Island. Budget authority for reactor safety and technology associated with light water reactors is proposed to increase from $25 million in 1980 to $40 million in 1981. The third change in the fission program comes about because of increased evidence that breeder reactors will not be economic until the year 2020 or later. Accordingly, the administration proposes to reduce the scope of the liquid metal fast breeder reactor program to a level that better reflects the expected need for this technology. No funds are proposed for the continuation of the Clinch River breeder reactor. Budget authority of $320 million is proposed for the liquid metal fast breeder reactor program in 1981. The budget supports an extensive program to identify and assess suitable sites to serve as a permanent nuclear waste disposal facility. In addition, remedial work is underway to decontaminate various sites where radioactive materials have been handled previously. Again this year, the administration proposes legislation to establish temporary spent fuel storage facilities away from reactors. The budget continues to support our nuclear nonproliferation objectives with programs to develop lower enriched fuels, which cannot be used for nuclear weapons, for research reactors and programs to demonstrate that light water reactors can continue to be an economic alternative to breeder reactors well into the next century. Total outlays for nuclear fission research and development under existing law are estimated to be $1,048 million in 1981, a decrease of $221 million from 1980. While increases occur in waste management and light water reactor technology, major decreases occur because of the reduction in the liquid metal fast breeder reactor program and discontinuation of the gas reactor programs. Research on the environmental effects of energy production and use is conducted with an emphasis on determining the human ENERGY 145 health and ecological effects of developing technologies, such as coal liquefaction and other synthetic fuels technologies. Additional funding is proposed for research to determine whether increasing amounts of carbon dioxide in the atmosphere cause changes in the Earth's climate. Over the past several years, the Department of Energy and the Environmental Protection Agency have worked closely together to improve the effectiveness of research on pollution control. Direct production programs.—The Government's direct energy production programs include producing enriched uranium for nuclear power plants, producing oil from the naval petroleum reserves, distributing electricity through five power marketing administrations, and generating and transmitting power through the Tennessee Valley Authority. The Department of Energy plans to continue to operate three existing gaseous diffusion uranium enrichment plants. These plants produce sufficient enriched uranium to meet the Federal Government's own requirements, as well as the needs of domestic nuclear power plants and anticipated foreign orders. Proposed outlays of $1.5 billion will continue ongoing work to increase enrichment capacity and make plant operation more efficient. These funds also provide for the continued construction of the new centrifuge enrichment plant at Portsmouth, Ohio. These outlays will be largely offset by uranium enrichment receipts, estimated to be $1.3 billion in 1981. In 1976, the Congress directed that oil production be increased at the naval petroleum reserves, located in California and Wyoming, in order to reduce U.S. dependence on imported oil. Oil produced from the reserves is sold at competitive prices, with receipts deposited in the Treasury. Government production from the reserves is expected to be about 160,000 barrels per day, with receipts estimated at $1.9 billion in 1981. The budget requests $145 million in new budget authority for development and production costs at the California and Wyoming reserves. The President has proposed legislation to open the national petroleum reserve in Alaska for oil and gas exploration and development through leasing as the fastest way to find any commercial quantities of these resources in the reserve with adequate protection for wildlife and other values. Accordingly, the budget proposes that Government exploration to define the potential for oil and gas resources at the Alaska reserve be concluded after the 24 exploratory wells funded for drilling through 1980 are completed. Ade- 146 THE BUDGET FOR FISCAL YEAR 1981 quate information has been collected to formulate recommendations to the Congress on the future use of the reserve. Of the 1980 appropriation, $18 million that was to prepare for drilling four additional wells in 1981 is recommended for rescission. New budget authority of $45 million is requested in 1981 for contract closeout costs and $9 million is proposed for later transmittal if leasing is authorized at the Alaska reserve. Net outlays for power marketing activities are estimated to increase from $1.6 billion in 1980 to $1.8 billion in 1981. Approximately 95% of these outlays are for continuation of the nuclear power plant construction program of the Tennessee Valley Authority (TVA). TVA, the Nation's largest electric utility, is currently operating one nuclear plant, building six others, and marketing about 5% of the electricity generated in the United States. Construction and operation of transmission facilities at the five Federal power marketing administrations and the administrative expenses of the rural electrification and telephone revolving fund make up the balance of power marketing outlays. In addition to its basic electric utility responsibilities, TVA is aggressively demonstrating the use of new energy sources as well as more efficient use of existing sources. For 1981, it is estimated that nearly $153 million will be obligated to demonstrate ways to use renewable energy resources such as wood, wind, and solar. About $30 million is planned for energy technology projects such as fuel cells for utility systems, and coal gasification plants to demonstrate that existing energy resources can be used in more efficient and environmentally acceptable ways. Finally, TVA plans to obligate over $133 million to demonstrate the potential of energy conservation through home insulation, commercial weatherization, employee ride sharing, and other conservation programs. The rural electric and telephone revolving fund is administered by the Rural Electrification Administration (REA). New insured loans to rural borrowers during 1981 are estimated to be at least $850 million for electric service to rural areas, and at least $250 million will be provided to furnish and improve telephone service to rural areas. In addition, the REA proposes to finance the construction and operation of generating plants, and electric transmission and distribution systems in rural areas. Under the Federal credit control program, the gross obligations for new loans approved and new loan guarantee commitments for 1981 are proposed to be included in the appropriation bills approved by the Congress. 147 ENERGY CREDIT PROGRAMS—ENERGY (In millions of dollars) Program 1979 actual 1980 estimate Synthetic fuels promotion: Loan guarantees: New loans Net loan guarantees 1981 estimate 2,300 2,300 2,000 2,000 50 50 Net loan outlays 50 50 Loan guarantees: New loans Net loan guarantees 250 250 250 250 24# 12 24 12 1 1 363 351 252 248 1,105 —899 1,325 -1,112 1,404 -1,210 206 212 194 2,650 2,650 4,260 4,260 4,845 4,845 Biomass: Direct loans: New loans Repayments, sales, and adjustments ( - ) Geothermal development and other energy: Direct loans: New loans Repayments, sales, and adjustments ( — ) * Net loan outlays Loan guarantees: New loans Net loan guarantees Off-budget Federal entity—Rural Electrification: Administration: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays 2 Loan guarantees: New loans Net loan guarantees * $500 thousand or less. • includes sales of direct loans. Includes guarantees of direct loans. 2 Energy conservation.—Conservation is the principal component of the administration's energy strategy. The range of alternatives for energy conservation is very broad. Realistic oil and natural gas pricing and effective regulatory policies (such as automobile fuel efficiency standards) are integral components of any meaningful conservation strategy. Conservation is also promoted by tax credits and by spending programs for conservation technology development, State and local grants, the Government's public information campaign, conservation investments in Federal build- 148 THE BUDGET FOR FISCAL YEAR 1981 ings, and the proposed utility oil use reduction program. The following chart shows the rapid growth in Federal energy conservation spending from 1977 to 1981. Federal Energy Conservation Programs $ Billions S BHlioni -4 4 • 3 —3 - Tax Expenditures 2- — 2 Other Federal > Budget Outlay* Dept. of Energy 1980 1981 Etfimaft Outlays for conservation programs in the energy function rise sharply from $0.3 billion in 1979 to $0.6 billion in 1980, and $1.2 billion in 1981. As the following table shows, when full account is taken of energy-related programs in other functions, budget outlays for energy conservation are estimated to increase from $0.9 billion in 1980 to $2.0 billion in 1981. Total tax credits for energy conservation are estimated to be almost $0.7 billion in 1981. These include business and residential conservation tax credits. The private investment corresponding to these credits is estimated to be over $6.0 billion in 1981. Technology development—Federal programs in this area help develop a better understanding of, and solution for, common technical problems in energy conservation. The programs include projects in cooperation with the private sector to develop energy saving technologies where there are large potential energy savings but severe technical risks and long lead times. In 1981, outlays for conservation technology are estimated to total $279 million, up ENERGY 149 OUTLAYS AND TAX CREDITS FOR ENERGY CONSERVATION {in millions of dollars) 1980 estimate Outlays for energy conservation: In the energy function: Conservation technology Conservation grants Public information campaign and other Residential and commercial conservation* Utility oil use reduction * Subtotal, energy function In other functions: Mass transit and automobile efficiency* Conservation investments in Federal buildings Total, outlays Tax credits for energy conservation (revenue loss) 1981 estimate 246 335 11 14 1 279 481 34 357 22 608 1,172 100 224 617 240 932 2,029 702 739 •Proposed in 1979 energy initiative. 13% from 1980. Proposed budget authority for these programs remains at the 1980 level because of the increased incentives that now exist for additional private investment in improved energyefficient technologies. The 1981 conservation technology budget consists of programs in four areas: buildings and community energy systems, industrial energy use, transportation, and small-scale technology. The buildings and community systems program will continue development of efficiency standards for buildings, conduct research to increase the energy efficiency of consumer products, and assist communities in reducing their energy consumption. The 1981 industrial conservation program includes key efforts in industrial waste energy reduction, cogeneration, and process efficiency improvements. Continued development of advanced automobile engines and electric vehicles are proposed. Finally, the budget supports development, demonstration, and encouragement of small-scale energy-related technologies that make use of renewable resources or conserve nonrenewable resources. Conservation grants.—Department of Energy grants provide weatherization assistance to low-income persons and to public or nonprofit schools and hospitals. These groups do not benefit from existing tax credits and might not make investments in conservation equipment without assistance. The administration requests that budget authority for low-income weatherization be continued at $200 million and that the schools and hospitals program be increased to $202 million in 1981, compared to $144 million in 1980. 150 THE BUDGET FOR FISCAL YEAR 1981 Proposed legislation for Energy Management Partnership Act grants will consolidate State energy conservation planning and "outreach" programs for public education, and extend the program to include State emergency preparedness and supply planning activities. This will give States more flexibility to use these funds to meet their needs. The legislation will also provide $50 million in grants to support local government energy conservation activities. This new program will be managed by the Department of Energy in consultation with the Department of Housing and Urban Development. Budget authority of $152 million is proposed for these initiatives, including $50 million for the local grants. Total outlays for conservation grants are estimated to increase from $336 million in 1980 to $481 million in 1981. Public information.—A new, national education campaign will give consumers information about the country's energy problems and explain how they can use energy more efficiently and take advantage of tax credits and other incentives. Outlays for the program are proposed to rise from $4 million in 1980 to $33 million in 1981. Utility oil use reduction.—The administration has proposed a program to reduce the use of petroleum for generating electric power and our dependence on imported energy sources. The Nation's electric utilities now consume 1.5 million barrels of petroleum each day. Conservation investments in Federal buildings.—High priority has been placed on conservation investments in Federal buildings. In 1981, $308 million in budget authority is requested for making such investments in the 8 departments or agencies that consume 91% of the energy used in Federal buildings. Other Federal establishments will also increase their conservation efforts. Through 1981, over $1.25 billion will be provided toward meeting the President's goal of increasing the energy efficiency of existing Federal buildings by 20% by 1985. Most of these funds are classified in functions other than the energy function. Residential and commercial conservation.—This program helps to finance conservation investments in residential and commercial buildings. The administration has also proposed that utilities be allowed to finance conservation investments in homes and businesses. Grant programs are proposed to support State training and certification of home energy auditors, and to demonstrate more sophisticated energy auditing techniques. ENERGY 151 Energy emergency preparedness.—The events of 1973-79 make it imperative that the Nation be prepared to deal with disruptions in energy supplies. Development of the strategic petroleum reserve is the major program in this area. Preparation of standby gasoline rationing plans also contribute to emergency energy preparedness, and is discussed in the energy information, policy, and regulation section below. The strategic petroleum reserve currently has $4 billion available for oil acquisitions, $2.3 billion of which is proposed for reappropriation in 1981. The administration continues to believe that the level of protection afforded by a billion-barrel reserve is needed. Current plans call for the completion of 750 million barrels of government storage in the late 1980's. No oil purchases for the strategic petroleum reserve have been made since March 1979, but purchases could be resumed in 1980 depending upon international market conditions. The budget assumes that deliveries may be resumed in June, 1980, at a level of 100,000 barrels per day. Additional budget authority of $9 million in 1980 and $15 million in 1981 is proposed for regional petroleum reserves for the east coast, Hawaii, and Puerto Rico. Budget authority of $2.4 billion is proposed for energy emergency preparedness in 1981. Net outlays are estimated to be $1.3 billion in 1981, compared to $0.8 billion in 1980 and $1.0 billion in 1979. Energy information, policy, and regulation.—Establishing and enforcing a sound set of energy policies and regulations, based on adequate information, are the objectives of this major mission. Budget authority of $1.2 billion is proposed in 1981, compared to $1.1 billion in 1980. Outlays are estimated to rise from $0.9 billion in 1980 to $1.2 billion in 1981. Significant increases in funding and personnel are proposed for the Nuclear Regulatory Commission for 1980 and 1981 to correct the weaknesses uncovered by the accident at Three Mile Island. Energy information and policy.—Three offices within the Department of Energy are primarily concerned with collecting energy information and developing energy policy. The Energy Information Administration collects data from the private sector on energy production, consumption, imports, reserves, and other factors needed for informed policy decisions. The Office of Policy and Evaluation is responsible for overall policy development and coordination. The Office of International Affairs helps formulate and carry out international energy policy. Outlays for these three offices are estimated at $144 million in 1981, compared to $127 million in 1980, with increases due mainly to planned improve- 152 THE BUDGET FOR FISCAL YEAR 1981 ments in the information collection programs of the Energy Information Administration. Regulation.—The purpose of energy regulation is to assure that national energy needs are satisfied safely, efficiently, and equitably. These objectives are important in both the 1980 and 1981 budgets, which provide for implementation of regulatory authorities in various laws, including those in the National Energy Act as well as more recent energy initiatives. The Federal Energy Regulatory Commission, an independent agency in the Department of Energy, will continue the important work of carrying out the requirements of the Natural Gas Policy Act. During the first year under the new act, the Commission successfully implemented the wellhead pricing provisions. Over the next year, incremental pricing, which assures that industrial customers pay for higher cost gas, will be put into effect. The 1981 budget total proposed is little changed from 1980. Spending for implementation of the Natural Gas Policy Act will be less, offset by more spending to assure compliance with pricing ceilings and to further reduce case backlogs. The Economic Regulatory Administration in the Department of Energy will continue to administer legislation that encourages industrial energy conservation to reduce dependence on oil. The Economic Regulatory Administration also administers the Emergency Petroleum Allocation Act that is intended to ensure equitable petroleum pricing and allocation. Under that act, domestic crude oil prices are being gradually increased to reduce the effect on consumers when full decontrol occurs on September 30, 1981. The 1981 budget therefore reflects small decreases from the 1980 level in anticipation of decontrol at the end of 1981. Large decreases are anticipated in 1982 after controls have expired and regulatory activities are reduced. Development of standby plans for gasoline rationing is now underway. The rationing system could be used in the event of a serious disruption in world petroleum markets. In 1980, $43 million in budget authority is requested to prepare ration checks and develop information and other systems that would be needed to put the program into effect in an emergency. The Nuclear Regulatory Commission regulates the siting, construction, and operation of all civilian nuclear reactors; nuclear fuel storage; and disposal of radioactive waste materials. It also conducts a nuclear safeguards program to prevent the loss or diversion of nuclear materials, and a research program to produce information needed to confirm the data and analytic methods that form the basis for nuclear licensing standards and regulations. ENERGY 153 The administration believes that safe nuclear energy generating capacity is critically important to America's energy future. The activities of the Nuclear Regulatory Commission will be redirected and reformed as a result of the Kemeny Commission Report on the accident at Three Mile Island to assure that nuclear energy is as safe as possible. In 1981, the Commission will place primary emphasis on enforcing the new requirements for safety, operator training, emergency planning, based on lessons learned from the nuclear accident at Three Mile Island. The lessons learned from the accident have resulted in increased research on risk assessment and on accidents involving small losses of coolant. Greater emphasis is also being placed on minimizing human error as a cause of accidents. The Commission will also continue to streamline its organization to make the regulatory process more responsive to the goals of improved reactor safety and reliable power. This process will include increased inspection activities and closer cooperation with State regulatory bodies. Waste management activities, including preparation of standards for licensing waste repositories, and closer monitoring and inspection of materials facilities other than reactors, are other important priorities. Total outlays for the NRC are proposed to increase from $307 million in 1980 to $476 million in 1981. THE BUDGET FOR FISCAL YEAR 1981 154 NATURAL RESOURCES AND ENVIRONMENT National Needs Statement • Protect the public health and welfare by insuring a clean environment with special emphasis on abating pollution of the land, air and water through control of hazardous wastes, injurious pesticides, and toxic substances. • Provide for the conservation and development of public lands, water, timber, minerals, and other natural resources. • Preserve natural areas, historic sites, and fish and wildlife. • Improve our knowledge and understanding of the atmosphere, the Earth's structure, environment, and resources. Intelligent stewardship of America's natural resources and environment is a prime responsibility of government at all levels. As energy and economic development proceeds throughout the Nation, the resources held in common—our air, water, and public lands— must be conserved and enhanced by every generation of Americans. The Federal budget must allocate funds with particular care to assure that the Nation's resources are developed and protected so as to provide a sturdy foundation for the Nation's future economic security and environmental well-being. To protect the environment and to assure a sound balance between the development and conservation of our natural resources, the budget proposes $13.3 billion in budget authority in 1981, an increase of 5% over the 1980 amount. In the environmental area, the 1981 budget emphasizes the protection of human health from the effects of hazardous waste and other toxic pollutants. Recent evidence indicates that hazardous wastes could pose very serious threats to the health and safety of many communities. Accordingly, the budget seeks large increases in the hazardous waste program of the Environmental Protection Agency. This program promotes proper management of chemical wastes by assessing the dangers posed by uncontrolled dump sites and by enforcing statutes regulating the disposal, treatment, and storage of wastes. To get on with the job of cleaning up uncontrolled dump sites, the budget also requests funding for the administration's superfund proposal for a cleanup fund of up to $1.6 billion financed primarily by industry fees. In addition, the budget maintains the administration's policy of steady, broad-based support for critical environmental protection NATURAL RESOURCES AND ENVIRONMENT 155 activities. This policy is put into effect by: increasing State grants for the control of hazardous wastes and of air and drinking water pollutants; strengthening the scientific data base on the health effects of environmental pollution; bringing Federal facilities into compliance with Federal, State, and local pollution laws; enhancing efforts to assure the environmental soundness of coal surface mining; focusing agricultural conservation efforts on reducing nonpoint source pollution; and strengthening the enforcement of endangered species legislation. The budget stresses more efficient and more environmentally sound development of resources on Federal lands. This emphasis reflects an overall budgetary strategy of investing prudently in the Nation's future economic and energy security. The 1981 budget emphasizes funding for coal leasing, for Outer Continental Shelf oil and gas lease sales, for timber sales and reforestation activities, and for enhancing the productivity of public domain grazing lands. Without impairing long-term commitments, the 1981 budget seeks only moderate increases in funds for direct and federally assisted land acquisitions and for sewage treatment plant construction grants, and directs water development planning toward highpriority projects, such as hydropower. Pollution control and abatement—The mission of controlling and reducing the pollution of air, water, and land is carried out both directly by the Federal Government and by State and local governments, with Federal financial and technical assistance. Outlays for this mission are estimated to increase by 4%, from $4.9 billion in 1980 to $5.1 billion in 1981. Regulatory and research programs.—The administration proposes budget authority of $1.4 billion in 1981 for the regulatory and research programs of the Environmental Protection Agency (EPA), an increase of 78% over 1977. The budget provides significant increases for the hazardous waste program, to protect human health and safety from chemical pollution on the land and pollution of underground water supplies. EPA will devote increased efforts to assessing the scope of the problem, and will promulgate regulations to insure the proper transportation, treatment, storage and disposal of hazardous wastes. In addition, the agency will step up enforcement of existing statutes to stop improper disposal activities and require remedial actions. EPA will discharge these responsibilities in coordination with State governments. THE BUDGET FOR FISCAL YEAR 1981 156 NATIONAL NEED: USING AND PRESERVING NATURAL RESOURCES AND IMPROVING THE ENVIRONMENT (Functional code 300; in millions of dollars) Major missions and programs 1979 actual 1980 estimate BUDGET AUTHORITY Pollution control and abatement: Regulatory and research programs Oil and hazardous substance liability fund (proposed) Oil pollution funds: Existing law Proposed legislation Sewage treatment plant construction grants 4,200 3,400 Subtotal, pollution control and abatement 5,306 Water resources: Existing law Proposed legislation Subtotal, water resources Conservation and land management: Management of national forests, cooperative forestry and forestry research Management of public lands Mining reclamation and enforcement Conservation of agricultural lands Other, including offsetting receipts Subtotal, conservation and land management Recreational resources: Land and water conservation fund: Existing law Proposed legislation Urban recreation grants Operation of recreational resources Subtotal, recreational resources Other natural resources: Existing law Proposed legislation Subtotal, other natural resources Deductions for offsetting receipts Total, budget authority lt091 1,241 1981 estimate 1,317 1982 estimate lr339 1983 estimate 1,373 250 375 500 13 - 1 3 - 8 8 - 8 8 3,700 4,000 4,400 4,686 5,267 5,714 6,273 3,621 3,777 4,136 5 5,069 3 5,143 3,621 3,777 4,141 5,072 5,143 1,811 429 115 522 -610 1,917 456 181 543 -526 1,801 458 188 554 -677 1,870 476 256 553 -828 1,960 492 268 537 -1,015 2,267 2,571 2,324 2,328 700 - 3 0 125 1,074 725 - 3 0 125 1,116 15 45 2,242 767 539 20 1,046 125 1,034 610 - 3 0 125 1,027 1,833 1,699 1,732 1,869 1,936 1,364 1,400 1,442 21 1,522 23 1,624 24 1,364 1,400 1,463 1,546 1,648 -1,183 -1,445 -1,622 -1,783 -1,875 13,207 12,687 13,306 14,745 15,366 NATURAL RESOURCES AND ENVIRONMENT 157 NATIONAL NEED: USING AND PRESERVING NATURAL RESOURCES AND IMPROVING THE ENVIRONMENT—Continued {functional code 300; in millions of dollars) Major missjons and programs 1979 actual 1980 estimate OUTLAYS Pollution control and abatement: Regulatory and research programs Oil and hazardous substance liability fund (proposed) Oil pollution funds: Existing law Proposed legislation Sewage treatment plant construction grants 13 Subtotal, pollution control and abatement Water resources: Existing law Proposed legislation Subtotal, water resources Conservation and land management: Management of national forests, cooperative forestry and forestry research Management of public lands Mining reclamation and enforcement Conservation of agricultural lands Other, including offsetting receipts Subtotal, conservation and land management Recreational resources: Land and water conservation fund Urban recreation grants... Operation of recreational resources Subtotal, recreational resources Other natural resources: Existing law Proposed legislation Subtotal, other natural resources Deductions for offsetting receipts Total, outlays •500 thousand ot less. 1981 estimate 1982 estimate 1983 estimate 1,106 1,131 1,167 45 205 333 31 19 -13 16 -16 —8 8 3,756 3,900 3,950 4,100 4,150 4,706 4,922 5,107 5,436 5,650 3,897 4,214 4,118 3 4,552 2 4,730 1 3,897 4,214 4,121 4,554 4,731 1,536 395 48 559 -654 1,662 448 114 572 -541 1,755 444 158 562 -673 1,935 461 182 553 -841 1,950 476 215 545 — 1,030 1,884 2,256 2,245 2,291 2,157 600 913 451 74 938 489 74 936 610 92 999 670 99 1,044 1,513 1,463 1,499 1,701 1,813 1,273 1,366 1,449 19 1,527 22 1,628 22 938 * 991 1,273 1,366 1,468 1,549 1,650 — 1,183 -1,445 -1,622 -1,783 -1,875 12,091 12,776 12,819 13,748 14,126 158 THE BUDGET FOR FISCAL YEAR 1981 Relative to 1980, funding requested for hazardous waste is increased by 47% and personnel by 97%. Budget authority for the development of the hazardous waste regulations is increased from §81 million in 1980 to $111 million in 1981. Furthermore, $26 million in 1981 budget authority is requested for research and development in support of the regulatory effort. Budget authority for grants to assist States to develop hazardous waste control programs is increased from $19 million in 1980 to $30 million in 1981. Hazardous waste enforcement activities are increased by $6 million to a level of $10 million. In addition to increasing grants to States to support the control of hazardous wastes, air and drinking water pollutants, the administration has also proposed legislation that would give States the flexibility to integrate two or more of the State environmental program grants administered by EPA. The key feature of this legislation is that States would have the flexibility to transfer up to 20% of certain grants to deal with problems that they consider high priority. When the enabling legislation is enacted, the administration will request additional funds for this program. In support of the President's energy programs, the budget proposes $16 million in 1981 budget authority for an EPA energy initiative to insure proper environmental standards for new energy technologies and development projects and to improve the accuracy of automobile fuel economy standards. The President, in his 1979 environmental message, established a 10-year, $13 million research program to assess the problem of acid rain and seek methods to prevent it. Recent research has shown that acid rain could threaten property, crops, and wildlife. EPA is participating in a committee to coordinate this multiagency program. The 1981 request includes $20 million in new appropriations for cost-sharing under the rural clean water program to solve agricultural nonpoint source pollution in rural areas. This funding is in addition to the $50 million appropriated for the program in 1980. Oil and hazardous substance liability fund.—The programs discussed above relating to hazardous wastes address current and future waste disposal sites. To deal with inactive sites that pose threats to the environment and public health, the administration has proposed legislation to establish a cleanup and emergency response fund of up to $1.6 billion over 4 years. The fund, which would also be used to provide emergency response to oil and hazardous substance spills, is to be financed primarily through fees paid by industry. Sewage treatment plant construction grants.—Since 1972, the Federal Government has provided over $31 billion for the planning, NATURAL RESOURCES AND ENVIRONMENT 159 design, and construction of municipal sewage treatment facilities. Federal grants cover 75% of the cost of facility construction. The budget requests budget authority of $3.7 billion for the program in 1981. This request, together with funds available from prior years, is estimated to make over $6.6 billion available to the States for obligation in 1981. Tax expenditures.—The Revenue Act of 1978 allows pollution control facilities, which are amortized over 5 years, to qualify for the full 10% investment credit, unless they are financed with taxexempt bonds. A 5% credit is allowed for tax-exempt financing. The investment tax credit provisions for pollution control facilities are estimated to result in a 1981 tax expenditure of $15 million. The exclusion of interest paid on pollution control bonds from taxable income also results in a tax expenditure. The facilities financed by these bonds are privately owned, even though the bonds are nominally issued by State or local governments. The resulting 1981 tax expenditure is estimated at $0.5 billion. Additional tax expenditures result from allowing certain payments made by customers of water and sewage disposal facilities to finance construction of new facilities to be treated as contributions to capital rather than income. This benefit is also available to gas and electric utilities. These exclusions will result in an estimated 1981 tax expenditure of $0.1 billion. Water resources.—These programs, conducted by the Army Corps of Engineers, Interior's Water and Power Resources Service, Agriculture's Soil Conservation Service, and other agencies, foster development of water resources while preserving the quality of the environment. Program benefits include: flood control, municipal and industrial water supply, irrigation of agricultural lands, water conservation, inland waterways and harbors, hydroelectric power, recreation and wildlife preservation, and erosion control. Outlays for water resources programs are estimated to decrease from $4.2 billion in 1980 to $4.1 billion in 1981. Outlay increases for operations and maintenance are more than offset by decreases in new and ongoing construction. Because of earlier than anticipated costs accrued on major contracts for ongoing projects, a supplemental of $92 million is requested to finance Corps of Engineers construction programs in 1980. This supplemental will keep construction projects on schedule. The budget provides for completion of all major features and project outputs on schedule. However, funding for the less essential features of about 50 projects, such as campsite preparation and the finishing of visitor facilities, will be postponed. 160 THE BUDGET FOR FISCAL YEAR 1981 No new starts for water resource construction are specifically recommended in the 1981 budget because the independent review of projects by the Water Resources Council must await authorizing legislation. The administration will propose funding for new starts as soon as such reviews can be legally conducted. On June 6, 1978, after a major study of Federal water policy, the President announced new and comprehensive proposals to: • improve the planning and management of Federal water resources programs; • move forward promptly with water projects that are economically efficient, safe, and environmentally sound; • provide a new national emphasis on water conservation; • improve Federal-State cooperation and State water resources planning; and • give enhanced emphasis and attention to environmental quality. The 1981 budget continues to press toward these goals. Budget authority of $140 million is requested for the planning programs of the Corps of Engineers and the Water and Power Resources Service to examine specific solutions for water resources problems throughout the country. These programs continue to be oriented toward projects with high priority outputs such as hydropower, urban flood protection, water supply and commercial navigation. Hydroelectric power studies have been given particular emphasis in the 1981 budget. A 1980 supplemental of $3 million will be requested to initiate hydroelectric project studies by the Water and Power Resources Service. In 1981, the Corps of Engineers and Water and Power Resources Service will emphasize studies to examine the potential benefits from adding hydroelectric generating capacity at existing Federal facilities. The budget provides $2.5 billion in 1981 budget authority for continuing construction of water resource projects of the Water and Power Resources Service, Corps of Engineers, and Soil Conservation Service. The comparable amount in 1980 was $2.4 billion. The 1981 request continues work on about 250 major projects that were started in prior years. Funding is also requested for major project rehabilitation and work to ensure the safety of existing Federal dams. Budget authority of $1.1 billion is requested for operation and maintenance of Federal water resources projects in 1981, compared with $1.0 billion in 1980. The budget targets these funds on projects that produce high-priority outputs—such as hydroelectric power— and defers operation and maintenance on projects with lower priority outputs, such as maintenance on lightly-used navigation projects or projects whose primary benefit is recreation. NATURAL RESOURCES AND ENVIRONMENT 161 The budget proposes for later transmittal $5 million of 1981 budget authority to initiate construction of two demonstration plants for saline water conversion. This proposal is contingent on passage of the pending administration proposal for non-Federal cost sharing on such plants. The budget also requests 1981 funding to complete the non-Federal dam inspection program. The administration will propose legislation authorizing continued maintenance of an up-to-date inventory of non-Federal dams. Conservation and land management-—Federal civil and defense agencies administer about 762 million acres or one-third of the land area of the United States. The Federal lands administered by civil agencies are managed to provide a balance among various considerations: recreation, wilderness preservation, wildlife habitat, environmental quality, watershed protection, timber production, mineral extraction, and range utilization. In 1978, the administration took steps to protect and preserve lands of outstanding national interest in Alaska by creating 56 million acres of national monuments, initiating steps to establish permanent wildlife refuges on 39 million acres of land, and withdrawing these areas and an additional 21 million acres from mineral development and from selection for State ownership. These actions will insure the preservation of the extraordinary scientific, historic, scenic, cultural, and wildlife values of the land. Much of the Federal land and extensive Outer Continental Shelf areas bordering Alaska will continue to be open for development, including timber, mineral, and oil and gas development. These actions will allow for balanced growth in Alaska, as well as preservation of unequaled national treasures. Total outlays for the mission of conservation and land management are estimated to be $2.2 billion in 1981, $11 million below the 1980 level. Management of national forests, cooperative forestry and forestry research.—The Forest Service administers the national forest system, covering 188 million acres; conducts a comprehensive forest and range research program; and engages in forestry programs with States and private landowners. Excluding Forest Service payments to States (which are included in the general purpose fiscal assistance function) and funds for fighting forest fires, proposed 1981 budget authority for these activities totals $1.8 billion. As usual, supplemental funds for uncontrollable costs of firefighting will be requested in whatever amounts are required. The budget proposes national forest timber sales of 11.9 billion board feet compared with 11.7 billion board feet proposed in the President's 1980 budget and 12.2 billion board feet provided in the 1980 appropriations. This level of timber sales will achieve the 162 THE BUDGET FOR FISCAL YEAR 1981 maximum environmentally acceptable harvest that can be economically justified with present policies. Although further increases in sales are possible, they would be uneconomic because the costs of the sales would exceed the value of the timber harvested. The budget also requests funding to carry out the President's directive to accelerate land management planning on selected national forests to determine the feasibility of increasing the harvest of mature timber through selective departure from the current "nondeclining even flow policy," Therefore, modest increases in timber sales and funding for land management planning are projected in 1983, 1984, and 1985. Significant increases in timber supplies by 1985 should result from this approach. The appropriations requested for reforestation and timber stand improvement will permit 195,000 acres of reforestation and 179,000 acres of timber stand improvement. An additional 265,000 acres of reforestation and 174,000 acres of timber stand improvement will be made with deposits from timber purchases and by the Young Adult Conservation Corps. The budget thus provides for a total of 460,000 acres of reforestation (including replanting timber harvest areas cut during 1981) and 353,000 acres of timber stand improvement. These amounts are sufficient to reduce the "reforestation backlog" by 1985 to the minimum level required to efficiently manage reforestation activities. The budget requests $55 million in budget authority for the Youth Conservation Corps in 1981 to provide summer employment for about 33,000 youths, the same level as in 1980. The 1981 budget proposes to fund forest research programs with budget authority of $126 million in 1981 compared with $112 million in 1980. Funding for cooperative forestry programs is down slightly due to reform of the rural fire protection program. Fish and wildlife management programs and recreation use programs on national forest are funded at $153 million in 1981, compared with $146 million in 1980. The 1981 budget was prepared with inputs from the multiyear program planning process now nearing completion pursuant to the Forest and Rangeland Renewable Resources Planning Act of 1974. Policy recommendations will be transmitted to the Congress in the near future. Income realized from logging timber is taxed at rates applicable to long-term capital gains, rather than as ordinary income. This will result in an estimated 1981 tax expenditure of $0.6 billion. Management of public lands,—The Bureau of Land Management administers about 417 million acres of public domain land, including about 223 million acres in Alaska. In addition, it manages subsurface rights vested in Federal ownership on another 370 million acres, and has jurisdiction over 1.1 billion acres of the Outer NATURAL RESOURCES AND ENVIRONMENT 163 Continental Shelf. In managing these lands, the Bureau strives for a balance among recreation, timber, grazing, mineral development, wilderness, wildlife, and other uses. Revenues collected from onshore mineral leasing, grazing fees, timber sales, land and materials sales, rights-of-way and other sources are estimated at $1.0 billion in 1981. Outer Continental Shelf receipts are included in the section on undistributed offsetting receipts. Budget authority for the Bureau, excluding firefighting costs, is proposed to increase from $411 million in 1980 to $458 million in 1981. Leasing of Federal coal lands will be resumed, ending the moratorium on such leasing which has been in effect since 1971. This is a major forward step in providing coal to meet the goals of our national energy policy. Budget authority for the Department of the Interior's coal leasing program is proposed to increase from $58 million in 1980 to $65 million in 1981. These amounts provide for: • a substantial increase in existing management activities on leased land and for preference right applications; • completion of preparatory activities required to permit new leasing of up to 1.5 billion tons of coal by 1982; and • initiation of prelease planning for an additional 25 to 35 billion tons of coal deposits to assure sufficient flexibility in location and tonnage leased, which may be necessary to meet energy initiatives. The budget provides for a significant increase in 1981 for investment projects to improve the quality of the public domain rangelands. The proposed 1981 level of budget authority is $97 million compared with $68 million in 1980. Outer Continental Shelf management activities are continued in 1981 at about the 1980 level, which reflects the new 5-year Outer Continental Shelf oil and gas leasing program proposed by the Secretary of Interior in June 1979. Mining reclamation and enforcement—The goals of the Office of Surface Mining Reclamation and Enforcement are the prevention of environmental degradation of land due to surface mining of coal, and reclamation of land previously damaged by such mining. Budget authority of $188 million is recommended for 1981, an increase of $7 million over 1980. The Office sets standards for surface mining of coal. The program is designed to have States assume responsibility for enforcement as soon as feasible. During 1981, the Office plans to approve the regulatory programs of most coal-producing States. The budget includes technical assistance and grants to help support the operating expenses of State programs. The Office will continue to have an oversight role in those States that assume regulatory responsibility, and will have full responsibility for enforcement in States that do not exercise this option. Budget authority of $100 million is 164 THE BUDGET FOR FISCAL YEAR 1981 recommended for these programs in 1981, compared with $86 million in 1980. Budget authority of $70 million in 1981 is requested for reclamation of abandoned mine lands by grants to the States and through direct Federal mine reclamation. This includes, $45 million for State reclamation grants. A supplemental request will be considered, if the requested funding proves insufficient. The Federal reclamation projects program is now underway. Prior year appropriations that have not yet been obligated are sufficient to fund most of the currently identified Federal projects. The 1981 budget requests additional budget authority of $25 million to fund the remaining projects and to identify and plan for additional projects. Conservation of agricultural lands.—Several programs contribute to the mission of protecting and maintaining the future productive capacity of the Nation's rural lands, through technical and financial assistance to conservation districts, State and local governments, and private landowners. Budget authority requested for these programs in 1981 totals $554 million, compared with $543 million in 1980. This request continues the redirection of cost sharing under agricultural conservation and Great Plains conservation programs to emphasize conservation measures that have long-term benefits. Other conservation and land management—The administration will submit legislation to extend Federal assistance to State coastal zone management programs under the Coastal Zone Management Act, administered by the Department of Commerce's National Oceanic and Atmospheric Administration (NOAA). Under the proposal, eligible States and territories would be guaranteed a total of 5 years of Federal assistance, at current funding levels, to aid them in carrying out the programs they have developed to promote the rational use and conservation of our coastal areas. Federal support would then be phased down as State and local efforts become established. The legislative proposal will also specify national coastal protection goals to be accomplished through the State programs. In addition to the coastal zone management program, NOAA also manages the coastal energy impact formula grant program and the marine and estuarine sanctuary programs that aid in the national development and conservation of our coastal areas. New funding requested for coastal energy impact grants in 1981 is below the 1980 level because adequate carryover funds from prior years will be available. Funds available in 1981 will allow the States to address adequately the economic and environmental impacts of Outer Continental Shelf oil and gas developments. NATURAL RESOURCES AND ENVIRONMENT 165 Outlays for the above programs are estimated to be $63 million in 1981, slightly less than the $67 million in 1980. Operation of Indian programs for conservation and land management, exclusive of fire-fighting costs, is proposed at $80 million in budget authority in 1981, compared with $68 million in 1980. Recreational resources.—The Federal Government acquires and operates national parks, recreation areas, historic sites, wild and scenic rivers, fish hatcheries, and wildlife refuges. Facilities are provided for the public and to improve fish and wildlife habitat. Grants and technical assistance are also provided to States for planning, acquiring, developing, and managing areas for recreation, fish and wildlife conservation, and the preservation of historic places. Outlays for these programs are estimated at $1.5 billion in 1981, about the same level as in 1980. Land and water conservation fund.—This fund provides grants to States to acquire and develop land for recreational purposes, and finances the Federal purchase of recreational lands. Appropriations of $580 million, an increase of $71 million over 1980, are requested in 1981 as follows: • $320 million for matching grants to States; • $252 million for the acquisition of land for national parks, wildlife refuges, and recreation areas; and • $8 million for administering the fund. An increase of $20 million over 1980 is requested for the State grant program in 1981. Budget authority of $35 million in 1981 is requested for areas to be purchased under general Federal acquisition authorities. The remainder of funding requested for the Federal program is for areas specifically authorized by law. Urban recreation grants.—This 5-year program was enacted in 1978 as one of the administration's urban initiatives. Urban recreation grants pay 70% of the costs of the rehabilitiation of city park and recreation facilities. Budget authority of $125 million is recommended in 1981. Operation of recreational resources.—This program conducts diverse activities necessary to the operation of the national park and wildlife refuge system. In addition, its activities encompass grants, research, and technical assistance in the areas of recreation, fish and wildlife, and historic preservation. Budget authority of $1.0 billion is recommended for 1981, about the same level as in 1980 and 1979. Budget authority of $45 million is recommended for the historic preservation fund that makes grants to States covering 50% of the costs of identifying, surveying and rehabilitating historic places. 166 THE BUDGET FOR FISCAL YEAR 1981 Increased funding is not appropriate because other Federal programs, including those of the Department of Housing and Urban Development and the Economic Development Administration, are increasingly being directed to counteract the loss of historic resources. Also, tax incentives to encourage historic preservation have been effective in stimulating investment to protect historic properties. The Fish and Wildlife Service manages 46 million acres of wildlife refuges, operates 89 fish hatcheries, conducts research on fish and wildlife, administers a program to protect endangered species, and provides grants to States to assist them in their programs for managing fish and wildlife. Budget authority for grants to States funded by Federal excise taxes on sporting equipment are estimated to total $128 million in 1981, compared with $124 million in 1980. The administration urges that the States use these funds for the protection of nongame as well as game species of wildlife. In 1981, the Department of Interior will attempt to allocate fish and wildlife grants to benefit all wildlife, not just game species, by coordinating the use of a number of available fish and wildlife categorical grants. Budget authority of $39 million is recommended for cooperative State-Federal wildlife management plans on Federal lands in 1986, compared with $33 million in 1980. This work is conducted pursuant to the Sikes Act and similar authorizing laws. The National Park Service develops, operates, and maintains the national park system, comprising 327 units totalling about 72 million acres. Included in the 1981 budget is a $2 million increase to fund air quality reviews in parks to protect against environmental degradation due to proposed energy developments near park areas. Budget authority recommended for the National Park Service in 1981 is $542 million, about the same as the 1980 level of $540 million. Other natural resources.—These activities are primarily directed at increasing the understanding of the environment and the Earth's structure. To accomplish this mission, the Geological Survey and the Bureau of Mines in the Department of the Interior, and the National Oceanic and Atmospheric Administration in the Department of Commerce conduct a wide range of activities. The Geological Survey conducts national geologic and mineral resources surveys, including the identification of geologic hazards such as earthquakes, water resources investigations, and topographic surveys and mapping. It also supervises Federal mineral leases and federally financed exploration to assess petroleum resources in the national petroleum reserve in Alaska. Recommended NATURAL RESOURCES AND ENVIRONMENT 167 termination of the latter program in favor of opening a leasing program are discussed in the energy function. Budget authority of $486 million in 1981 is recommended for the Geological Survey activities in this function, compared with $469 million in 1980 and $419 million in 1979. The budget requests increases above the enacted 1980 levels in support of accelerated leasing of the Outer Continental Shelf, supervision of onshore leasing activities, better coordination of water data, and for nuclear waste disposal. The Bureau of Mines conducts research and administers various programs to develop and conserve the Nation's mineral resources, to diminish the adverse effects on the environment of mining, and to protect the health and safety of miners. Budget authority of $109 million is recommended for these programs in 1981, compared with $105 million in 1980. The National Oceanic and Atmospheric Administration (NOAA) conducts marine- and atmosphere-related research and environmental monitoring, produces maps and charts for navigation, manages our marine fisheries, protects marine mammals and endangered species, and operates a national system to monitor and forecast weather conditions. As discussed in the general science, space, and technology function, NOAA also will assume responsibility for operating civilian remote sensing satellites. An increase in budget authority from $727 million in 1980 to $744 million in 1981 is proposed for the operations of NOAA. The requested increases in funding would allow for expanded research in support of the protection and management of fisheries, improved marine weather warning and forecasting services, increased climate-related research, and the development of a national ocean satellite system (discussed in the space and technology function). NOAA also plans to begin a rehabilitiation and upgrading program to extend the useful life of its existing research fleet, accelerate the automation of surface weather observations to reduce personnel and improve data collection, and develop new, advanced weather radars that will improve severe weather warnings significantly. The proposed development of new meteorological equipment is being coordinated closely by NOAA with the weather programs of the Departments of Defense and Transportation to ensure that the common requirements are met in a cost-efficient manner. Credit programs.—Loans are made to State and local organizations for the construction and rehabilitation of small irrigation, municipal, and industrial water systems that utilize water from Federal projects. 168 THE BUDGET FOR FISCAL YEAR 1981 CREDIT PROGRAMS—NATURAL RESOURCES AND ENVIRONMENT (In millions of dollars) Program Water resources and other. Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays. 1979 actual 1980 estimate 1981 estimate 23 1 40 - 7 18 - 8 24 33 10 AGRICULTURE 169 AGRICULTURE National Needs Statement: • Assure sufficient agricultural production to meet domestic needs and export demands. • Provide an adequate return to farmers based on the cost of production. • Dampen fluctuations in food prices. • Increase farm production and income through the conduct and application of research. • Improve health through nutrition and food safety. • Improve the efficiency and reliability of domestic and export agricultural marketing systems. American agricultural commodities provide basic nutrition for millions of people around the world and a livelihood for American farmers. Total agri-business accounts for about 20% of our gross national product; and U.S. exports of farm products in 1978 amounted to close to 17% of total world farm exports. The Nation, therefore, has a strong interest in assuring that food supplies are sufficient to meet domestic needs, to earn foreign exhange through commercial exports, and to provide food to the needy in poor countries facing shortages. It is also in the national interest to protect American agricultural producers against the vagaries of weather and of excessive fluctuations in prices. Recent events have highlighted the importance of our agricultural policies. Periodically, the Soviet Union faces large shortfalls in grain production with simultaneous growth in domestic demand. In 1976, the United States agreed to supply between 6 and 8 million metric tons of grain per year to help offset these shortfalls. This year, the Soviet purchases were projected to total 25 million metric tons. However, following the Soviet aggression against Afghanistan, the administration took a number of measures, the most important of which was to limit Soviet grain purchases in the United States to 8 million metric tons annually. The administration has pledged that any adverse effects of the limitation of exports to the Soviet Union shall not fall disproportionately on farmers. To that end, an export control mitigation plan has been announced, under which the Department of Agriculture will: • offer to purchase contracts on at least 13.7 million metric tons of grain and 1.1 million metric tons of soybeans and soybean products in 1980; • increase loan levels for wheat and feed grains; 170 THE BUDGET FOR FISCAL YEAR 1981 • modify the grain reserve programs to encourage farmers to place additional grain in the reserves; and • establish a reserve of up to 4 million metric tons of wheat for use in foreign food assistance programs (included in the international affairs function). The total effect of the export control mitigation program on budget outlays is estimated at $2.0 billion in 1980 and $0.8 billion in 1981. The 1981 budget demonstrates the Federal commitment to a strong agricultural economy in three ways: • by supporting prices and incomes in years of abundant supplies and by helping to create farmer-held grain reserves for use in years of short supply, moderating the swings in the agricultural economy; • by increasing basic animal and plant research so that the American farmer can continue to be one of the world's most efficient and dependable suppliers of food and fiber; and • by assisting farmers in adopting environmentally sound soil conservation and pollution control practices that protect our land and water resources for a growing farm economy, (These programs are discussed in the natural resources and environment national needs section.) Outlays for the agriculture function are estimated to decrease from $4.6 billion in 1980 to $2.8 billion in 1981. This decrease reflects reduced costs for export control mitigation and major financing changes, including higher asset sales by the agricultural credit insurance fund and a substitution of loan guarantees for direct loans under the short-term export credit program. The United States is the world's largest exporter of farm products. Many countries depend on us to close the gap between their production and consumption, and we look to them as markets for our farm products. U.S. grain exports increased from 26.4 million tons in 1960 to 94,1 million in 1979 and are projected to grow to over 100 million tons in 1980. Since exports are a large part of U.S. agricultural production, small changes in world production and demand can produce rapid increases and decreases in the prices of U.S. farm products. Consequently, mechanisms are needed that stabilize prices but are flexible enough to allow us to respond to changing supply and demand. These objectives are being met through the operation of grain reserves. Farmers placed surplus grain from the large 1977 and 1978 crops into the reserve; and farmer-held reserves reached a peak of 11.2 million tons of wheat and 22.2 million tons of feed grains in May 1979. In the late spring of 1979, crop conditions abroad indicated a likely shortfall in U.S.S.R. grain production, and grain prices moved up substantially. In June 1979, grain prices rose AGRICULTURE 171 above the minimum level at which farmers can sell their reserves without penalty. This caused grain to flow out of the farmer-held reserves and into export markets. The immediate budget impact of this shift from a buyers to a sellers market was to increase offsetting collections, thus reducing net outlays. Actual receipts in 1979 were $700 million above the levels projected in last year's budget. The administration decided not to establish acreage set-asides for 1980 crops. Under set-aside programs the Federal Government attempts to prevent the supply of the major crops that benefit from Federal price supports from exceeding projected demand. This is accomplished by requiring farmers to refrain from planting portions of their land in exchange for the benefits of price guarantees. The administration made this decision against a background of strong commodity prices and expanding export markets. With the curtailment of grain exports to the Soviet Union, voluntary acreage set asides will be considered in the future, and put in place if overall supply and demand conditions warrant them. The administration is continuing to build export markets outside of the Soviet Union. An aggressive market promotion program is being carried out in cooperation with private commodity groups, and export credit will be provided through an enlarged program of credit guarantees. These will be revised to cover commercial as well as noncommercial risks. Proposed commitments for loan guarantees are being increased from about $1.0 billion in 1980 to $2.0 billion in 1981. No new commitments for direct loans for shortterm export credits are proposed for 1981, compared to $800 million in 1980. This shift to loan guarantees will enable private financing institutions to provide the credit for importers of our farm products. Farm income stabilization.— This mission is the major Federal involvement in the agricultural sector. Estimates of price support outlays are highly speculative and subject to the uncertainties of weather and markets at home and abroad. The projected outlays are not limits on the assistance to be provided and they will vary upward or downward depending on the requirements of the agricultural sector. As discussed above, on January 4, 1980, the President announced a reduction of about 17 million metric tons in grain exports to the Soviet Union. To offset adverse effects on grain producers, the export control mitigation program will remove or divert from normal marketing channels that portion of the 17 million metric tons of grain that cannot be sold elsewhere. For the 1980 crop, if circumstances warrant, the Department of Agriculture is prepared to offer payments to grain producers to 172 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: IMPROVED AGRICULTURE (Functional code 350; in millions of dollars) Major missions and programs BUDGET AUTHORITY Farm income stabilization: Price support and related programs: Existing law Prnrwspri Ipoislatinn Federal Crop Insurance Corporation: Existing law Proposed legislation Agriculture credit insurance fund Other programs Unallocated salaries and expenses Subtotal, farm income stabilization Agricultural research and services: Research programs: Existing law Proposed legislation. Extension programs Marketing programs Animal and plant health programs Economic intelligence Other programs Unallocated overhead Offsetting receipts Subtotal, agricultural research and sen/ices Deductions for offsetting receipts Total, budget authority 1981 estimate 1980 estimate 1979 actual 1982 estimate 1983 estimate 6,491 3,056 3,300 1,751 1,980 14 12 12 1,132 36 228 273 43 193 12 111 297 37 198 12 138 469 41 203 12 146 384 60 208 7,899 3,576 3,955 2,614 2,805 598 572 275 73 239 137 56 75 -55 286 77 255 149 62 90 -66 602 5 298 79 261 163 63 101 -65 648 5 325 80 282 171 63 105 -66 681 5 351 82 302 181 64 109 -67 1,400 1,424 1,507 1,614 1,708 48 9,346 -3 -3 —3 -3 4,998 5,460 4,225 4,510 curtail the size of their crop. To the extent that the actions outlined above prove insufficient to offset the impact of the embargo, the administration is prepared to seek emergency legislation to remove any existing legal barriers that impede the achievement of that objective. Price support and related programs.—Commodity Credit Corporation (CCC) outlays for price support programs under existing law are projected to fall from $2.8 billion in 1980 to $1.7 billion in 1981. This decrease reflects a number of partly offsetting changes including: • a $1.2 billion decrease in the export control mitigation program; • the substitution of loan guarantees for direct lending under the short-term export credit program, which reduces outlays by $0.8 billion; and • a $0.5 billion increase in disaster and deficiency payments. AGRICULTURE 173 NATIONAL NEED: IMPROVED AGRICULTURE—Continued (Functional code 350; in millions of dollars) Major missions and programs OUTLAYS Farm income stabilization: Price support and related programs: Existing law Proposed legislation Federal Crop Insurance Corporation: Existing law Proposed legislation Agriculture credit insurance fund Other programs Unallocated salaries and expenses Subtotal, farm income stabilization Agricultural research and services: Research programs: Existing law Proposed legislation Extension programs Marketing programs Animal and plant health programs Economic intelligence Other programs Unallocated overhead Offsetting receipts Subtotal, agricultural research and services Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Agricultural credit insurance fund 1979 actual 1980 estimate 1931 estimate 1982 estimate 1983 estimate 3,572 2,792 1,697 359 313 264 1,126 227 —8 27 1,017 43 226 238 40 188 27 93 -1,020 41 193 28 122 544 60 198 29 129 512 66 203 4,850 3,286 1,389 1,529 2,292 524 524 273 64 230 133 56 115 -55 262 81 254 149 59 90 -66 538 1 276 81 261 163 61 99 -65 543 5 301 80 281 172 60 104 -66 567 5 325 82 301 181 61 108 -67 1,340 1,353 1,416 1,480 1,563 48 —3 -3 -3 -3 6,238 4,636 2,802 3,006 3,852 5,045 2,946 2,487 943 531 The budget also reflects pending legislation that would create a food security reserve for international food aid programs and a program of subsidized crop insurance. Purchases of grain for this reserve would be made in 1981 and, with related carrying charges, would amount to $359 million in outlays. For 1982 and beyond, outlays for crop insurance subsidies and for storage costs for grain in the reserve are estimated to range from about $225 to $300 million. Crop insurance.—Farmers are offered insurance against crop losses from natural hazards by the Federal Crop Insurance Corporation. Over the past year, the administration proposed, and the Congress has been considering, ways of improving the crop insur- 174 THE BUDGET FOR FISCAL YEAR 1981 COMMODITY CREDIT CORPORATION OUTLAYS (In millions of dollars) Function and program Agriculture: Price support and related programs: Existing law: Commodity loans Commodity purchases nkactpr Davmpnts Other direct payments Grain reserve storage payments Fxnort rnntrnl mitipation Short-term and intermediate export credit Storage facility loans Interest expenditures Other price support operations Receipts and adjustments Proposed legislation Subtotal, price support and related programs Other agricultural activities Subtotal, agriculture International affairs: Public Law 480 food aid: Gross outlays Receipts and reimbursements Subtotal, international.. Total, Commodity Credit Corporation outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 4,111 840 562 313 221 800 3,731 917 3,493 1,056 358 141 837 112 225 1,104 375 -6,854 359 150 980 374 -6,337 264 150 825 354 -5,701 227 2,792 37 2,056 40 577 60 1,353 66 3,612 2,829 2,096 637 1,419 1,374 -399 1,605 -436 1,615 -462 1,680 -490 1,800 -525 976 1,169 1,153 1,190 1,275 4,587 3,998 3,249 1,827 2,694 3,897 677 367 1,444 247 3,869 928 247 145 240 2,000 1,528 679 705 389 -6,361 800 375 1,052 396 -7,258 3,572 39 ance program so that it can be substituted for the disaster payments component of price support and related programs. The proposals include expanding greatly the geographic area where crop insurance is offered, increasing the number of crops that can be insured, and expanding the risks that are covered. The budget assumes enactment of this proposal for 1981, and estimates reflect the administrative costs and the premium subsidies involved in the proposed legislation to establish the new all-risk crop insurance program. Although the administration is recommending that CCC disaster payments be extended an extra year while the new system is starting up, they will be dropped in favor of Federal crop insurance starting with the 1982 crop. Outlays for the new program will depend primarily on the weather, the number of participants in the new system and the trend in crop prices. Outlays are estimated to be $120 million in 1981 and $150 million in 1982 if about 30% of eligible farmers choose to participate in the new system. (Small business disaster loans, which are also available to farmers, are discussed under community and regional development.) 175 AGRICULTURE Agricultural credit insurance fund.—Agricultural loans, including emergency loans, rose to $7.7 billion in 1979, with over 75% of this amount going for disaster and economic emergency loans. Total loan obligations by the agricultural credit insurance fund are estimated to decline from $5.5 billion in 1980 to $3.8 billion in 1981, largely because of the lapse of the economic emergency loan program and the tightening of the rules for disaster loans. The lending levels proposed for farm ownership and farm operating loans in 1981 are the same as the increased levels enacted in 1980, and 25% of these funds will continue to assist farmers with limited resources. Recent criticism over the large size of some of the disaster loans and the apparent wealth of the recipients of those loans is leading to a general tightening of the disaster loan program. Authority for economic emergency loans will expire in May of 1980. The budget assumes that it will not be extended. Under the administration's proposal, once a new crop insurance program is fully operative, eligibility for the disaster loan program will be conditioned on prior purchase of crop insurance. Receipts of the agricultural credit insurance fund are expected to exceed outlays by $0.3 billion in 1980 and $1.5 billion in 1981, largely as a result of asset sales to the Federal Financing Bank carried over from the previous year. AGRICULTURAL CREDIT INSURANCE FUND—LOAN OBLIGATIONS (In millions of dollars) Loan program Farm ownership Farm operating Emergency: Natural disasters Economic Soil and water Other Total 1979 actual 1980 estimate 763 895 1981 estimate 870 875 870 875 2 t 872 3,090 52 42 2,500 1,100 53 56 2,000 7,714 5,454 3,848 53 50 Agricultural research and services.—Programs in this mission seek to improve production and marketing efficiency by encouraging better technology and regulation. They also provide information on worldwide agricultural markets and control the spread of animal pests and diseases. Research. —Research helps increase agricultural productivity. It can provide new knowledge of human nutrition, food safety and post-harvest technology. Budget authority of $602 million is requested for agricultural research in 1981, compared to $572 million in 1980. THE BUDGET FOR FISCAL YEAR 1981 176 The funds requested will be used to respond directly to a number of the key areas of national concern: stimulating innovation in industry; improving health for all Americans; expanding the application of existing earth satellite technologies; managing natural and man-induced environmental changes; and enhancing developing countries' agricultural capacities. Research will be carried out primarily through private, State, and local organizations. Increases are requested for the State agricultural experiment stations and cooperative extension services to offset the effects of inflation on the level of program activity. In addition, funding is requested to initiate a program of grants to renovate and construct much needed laboratory space at the historically-black land grant schools. Over a period of 5 years, Federal funding of $25 million would be matched by State funding, resulting in a total of $50 million for research facilities at these institutions. Budget authority of $5 million is requested for 1981. Animal and plant health.—The Federal Government carries out a number of programs to prevent the introduction and spread of plant and animal pests and diseases that can cause severe losses in crop yields or livestock. Budget authority of $261 million is proposed for these services in 1981, an increase of $6 million over the 1980 request. CREDIT PROGRAMS—AGRICULTURE (In millions of dollars) Program Price support and related commodity loans: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans New loan guarantees Agricultural and emergency credit programs and other Direct loans: New loans Repayments, sales and adjustments ( - ) 1 Net loan outlays 1979 actual 1980 estimate 1981 estimate 6,103 - 5,509 5,044 - 5,879 4,336 - 5,399 594 -835 -1,063 136 136 938 907 2,000 1,656 7,940 - 7,235 6,538 - 6,826 5,089 - 6,568 706 -288 -1,479 4,331 2,585 3,866 2,170 2 Loan guarantees: New loans Net loan guarantees 1 Includes sales of direct loans. * Includes guarantees of sales of direct loans. 5,576 4,692 AGRICULTURE 177 Credit programs.—Net credit outlays for price support and related commodity loans are projected to fall by $228 million in 1981. The elimination of direct lending for export credit more than offsets a decline in repayments for commodity loans. Agricultural and emergency credit programs include farm real estate, farm operating and emergency loans. The estimated decrease in net outlays for these programs is a result of larger amounts of asset sales in 1981 than in 1980, and a projected reduction in new lending for emergency purposes. Tax expenditures.—The objectives of agricultural income support and rural development are promoted by a range of tax expenditures. The tax code permits farmers to treat certain capital outlays as current expenses and accords capital gains treatment to certain types of ordinary income. The 1981 revenue loss from these two provisions is estimated to be $0.6 billion and $0.4 billion, respectively. Rural electric, telephone, and agricultural marketing cooperatives can deduct noncash patronage dividends, and they receive preferential tax treatment in a variety of ways. A 1981 tax expenditure of $0.4 billion is expected from these preferences. The Revenue Act of 1978 permits payments received under Federal and State cost sharing conservation programs to be excluded from income. The revenue loss from this provision is estimated to be $0.1 billion in 1981. Related programs.—Several programs that fulfill other national needs complement the programs in agriculture. The most important of these programs is the Public Law 480, food aid program, which is discussed in the International Affairs section. OUTLAYS FOR FEDERAL PROGRAMS THAT SUPPORT THE AGRICULTURE MISSIONS (In millions of dollars) Program Title Disaster loans, drought assistance, and emergency conservation Conservation of agricultural lands Rural clean water programs Public Law 480 food aid Food safety and quality service 310-000 0 - 8 0 - 1 3 Primary function in budget 450 300 300 150 550 1979 actual 993 559 976 263 1980 estimate 652 571 5 1,169 291 1981 estimate 217 562 6 1,153 300 178 THE BUDGET FOR FISCAL YEAR 1981 COMMERCE AND HOUSING CREDIT National Needs Statement: • Insure that an adequate supply of mortgage credit is available nationally. • Target credit to urban and rural areas and prospective borrowers not well served by private credit markets. • Encourage urban revitalization efforts. • Maintain effective mail service at reasonable rates with costs largely borne by postal customers. • Encourage the development of jobs and a productive economy through assistance to and oversight of business. The Federal Government's long-term objectives in the commerce and housing credit area are significantly affected by aggregate fiscal and monetary policies, which must continue to counter inflationary pressures. The housing industry has remained much stronger during this current period of high interest rates than it has in previous periods of credit restraint. Total housing starts in calendar year 1979 were about 1.7 million units, down only about 300,000 units from 1978. During calendar year 1980, housing starts will decline further along with declines in other sectors of our economy. The trough of housing starts is expected to occur during the middle of the year. For 1980 as a whole, housing starts are forecast to be between 1.4 and 1.5 million units, more than 25% above the 1.17 million units started in 1975, the low point of the previous housing cycle. As overall economic conditions improve in 1981, the housing sector should return to higher levels of activity. Housing starts are projected to be at an annual rate of about 2.0 million units by the end of the calendar year 1981. The ability of the housing sector to avoid bearing a disproportionate share of the decline in 1980 economic activity reflects: • the administration's efforts to introduce institutional changes in financial markets, such as the 6-month "money market" certificate, to enable mortgage lenders to compete more effectively for available funds; • administration support for housing through expanded use of federally sponsored secondary market facilities and increased production of federally subsidized low-income housing; and COMMERCE AND HOUSING CREDIT 179 • the underlying strength of the demand for housing derived largely from the post-World War II baby boom. The performance of the housing market is important to the continued improvement of housing conditions in the Nation, especially for low-income families. Census data indicate that the number of households residing in physically substandard housing units has declined substantially—for example, as of the fall of 1977, 5.0 million lower-income households resided in units with one or more significant physical deficiencies, compared to 5.8 million in 1974. This favorable trend in housing conditions is expected to persist because of continued strong performance by the private housing market, the continued projected growth in family incomes, and continued growth in the number of low-income families benefiting from Federal housing subsidies. Current high interest rates have not been uniformly extended to the small saver and the elderly, those with limited assets and least able to shift to more profitable investments. The administration continues its commitment to greater equity in the provision of financial services by an orderly phasing out of regulatory restrictions on the earnings of deposits at banks and savings institutions. A principal concern of this administration is to avoid the sharp and disproportionate reductions in housing credit that can result from tight monetary policies. The administration also seeks to ensure that the Federal Government continues to provide an economic environment and adequate investment incentives to foster continued strength in the housing market. Other major concerns are to achieve Federal commerce and housing credit objectives more efficiently, and to target Federal resources more effectively to those groups, regions, or economic sectors with the greatest need. While Federal expenditure programs in this function contribute significantly to the achievement of Federal objectives, Federal tax policies and credit programs make perhaps an even more substantial contribution. Major administration efforts to avoid sharp curtailments of mortgage credit and housing market activities include: • an additional $1.8 billion in 1981 commitments by the Government National Mortgage Association (GNMA) to purchase mortgages of rent-subsidized housing projects and for middle/ moderate income multifamily housing projects in distressed urban areas through the targeted tandem program; • initiation of a new demonstration program under which lumpsum mortgage interest subsidy grants would be substituted for mortgage purchases; • continued broad use of GNMA mortgage-backed securities to attract nontraditional investors to mortgage markets; and 180 THE BUDGET FOR FISCAL YEAR 1981 • continued use of money market certificates to attract deposits at savings and loan institutions, especially the new 30-month money market certificates approved recently by the Federal Home Loan Bank Board. The budget also makes more efficient and effective use of Federal resources allocated to commerce and housing credit by: • reintroducing the administration's proposal to initiate a temporary mortgage assistance payments program to help homeowners in temporary financial trouble to avoid foreclosures; • continuing to rely primarily on the private sector to renovate and repair multifamily properties currently held by the Federal Housing Administration (FHA) in conjunction with the sale of those properties; • consolidating and restructuring international trade assistance to strengthen the export performance of the United States and to assure fair international trade practices; • continuing to target rural housing programs to low-income families occupying substandard housing; • restructuring the business loans programs of the Small Business Administration and expanding direct loans to minorityand women-owned firms; • initiating new program activities to strengthen the development of women's business enterprise; • increasing the level of minority business participation in Federal procurement; and • undertaking a new program initiative designed to enhance the rate of industrial innovation. Mortgage credit and thrift insurance.—Federal housing policy continues to focus on the basic goal of providing a decent home in a suitable living environment for every American family. Federal housing programs carry out this goal by: • ensuring an adequate supply of mortgage credit; • increasing the stock of housing through new construction and rehabilitation programs; and • providing explicit subsidies primarily for low- and moderateincome households. Most of the explicitly subsidized programs are discussed in the income security section. Mortgage credit programs are aimed at increasing the supply of credit for housing. Mortgage insurance, guaranteed and direct loans, interest subsidies, and secondary mortgage market activities support the smooth operation of private mortgage credit markets and supplement those markets, particularly in rural and centralcity areas. By making credit available at affordable interest rates, Federal credit policies stimulate the demand for, and therefore, the production of, housing. COMMERCE AND HOUSING CREDIT 181 NATIONAL NEED: PROMOTION OF COMMERCE AND HOUSING CREDIT (Functional code 370; in millions of dollars) Major missions and programs BUDGET AUTHORITY Mortgage credit and thrift insurance: Department of Housing and Urban Development: Mortgage purchase activities (GNMA).... Mortgage credit (FHA) Housing for the elderly or handicapped... Department of Agriculture—rural housing programs National Credit Union Administration Subtotal, mortgage credit and thrift insurance Postal Service 1979 actual Subtotal, other advancement and regulation of commerce Deductions for offsetting receipts Total, budget authority 1982 estimate 1983 estimate 509 391 786 1,829 286 803 698 263 780 415 270 765 547 250 750 793 2,310 1,200 621 1,443 1,645 2,479 6,428 2,363 2,893 3,193 1,785 1,677 1,593 1,627 1,490 -253 -188 -106 -100 759 4 220 276 776 74 245 723 941 175 278 241 996 221 285 192 1,032 156 293 216 398 502 526 -16 553 -31 576 -48 1,657 2,321 2,145 2,216 2,226 * * 5,921 10,172 5,912 6,630 6,809 Federal Financing Bank Other advancement and regulation of commerce: Small business assistance National Consumer Cooperative Bank Technology utilization Economic and demographic statistics Other.Existing law Proposed legislation 1981 estimate 1980 estimate * $500 thousand a less. Past periods of fiscal and monetary austerity have led to sharp outflows of savings from savings and loan institutions to other savings instruments, resulting in severely depressed housing construction activity. However, the development of the 6-month money market certificate, the recent introduction of the 2V2-year saving certificate, the expanded use of GNMA mortgage-backed securities to attract nontraditional mortgage investors and the provision of GNMA tandem interest subsidies, continue to allow the housing sector to compete more effectively for funds during the current period of high interest rates. Mortgage purchase activities.—Major Federal support for the mortgage market is provided by the Government National Mortgage Association (GNMA). Guarantees of securities that are backed by privately held pools of mortgages insured by the Federal Housing 182 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: PROMOTION OF COMMERCE AND HOUSING CREDIT—Continued {Functional code 370; in millions of dollars) Major missions and programs 1981 estimate 1980 estimate 1979 actual 1982 estimate 1983 estimate OUTLAYS Mortgage credit and thrift insurance: Department of Housing and Urban Development: Mortgage purchase activities (GNMA).... Mortgage credit (FHA) Housing for the elderly or handicappedDepartment of Agriculture—rural housing programs Federal Deposit Insurance Corporation Federal Home Loan Bank Board National Credit Union Administration 225 193 459 1,036 148 700 -351 -70 700 154 -125 650 166 -174 650 184 -1,218 —488 -30 1,806 -1,450 -479 173 -958 -1,500 -602 -32 1,087 -1,550 -668 -35 1,277 -1,600 -759 -40 Subtotal, mortgage credit and thrift insurance -677 1,935 -2,813 -487 -480 1,787 1,677 1,593 1,627 1,490 -253 -188 -106 -100 212 214 719 36 243 648 869 161 268 317 927 234 282 204 961 209 292 210 354 471 517 -12 554 -33 571 -50 1,454 2,118 2,121 2,168 2,193 Postal Service Federal Financing Bank Other advancement and regulation of commerce: Small business assistance National Consumer Cooperative Bank Technology utilization Economic and demographic statistics Other: Existing law Proposed legislation Subtotal, other advancement and regulation of commerce Deductions for offsetting receipts Total, outlays ADDENDUM Off-budget Federal entities: Postal Service: Outlays Federal Financing Bank: Budget authority Outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Rural housing insurance fund Federal Financing Bank (net interest and capital transfers) Small business assistance 674 * # _ * 2f565 5,476 712 3,202 3,103 —891 178 1,606 -73 858 16,050 13,172 22,006 16,408 23,937 16,316 19,840 15,017 22,445 11,806 2,930 1,852 4,889 1,637 1,637 -110 68 159 169 72 166 -140 164 -143 94 •$500 thousand or less. Administation or guaranteed by the Veterans Administration are one form of support. These guaranteed securities help to attract COMMERCE AND HOUSING CREDIT 183 investors who have not traditionally invested in mortgages. New securities guaranteed by GNMA are estimated to increase from $20.5 billion in 1980 to $25.0 billion in 1981. GNMA also operates 'tandem' mortgage purchase programs to support special types of mortgages. Under the tandem programs, GNMA purchases mortgages with below-market interest rates at prices above their true market value and then resells these mortgages to private lenders at market value. The loss GNMA incurs in reselling the below market interest rate mortgages is the net cost of providing the interest rate subsidy. Two types of mortgages are currently being supported by the GNMA tandem program. The first type is FHA-insured mortgages for multifamily projects receiving rent subsidies through the lower income housing assistance program of the Department of Housing and Urban Development (HUD). The second is the "targeted tandem" program, which supports the construction of moderate- and middle-income rental housing in distressed urban areas. Interest subsidies provided by the latter program encourage the return of middle-income families to these distressed areas. The budget proposes $1.8 billion of mortgage purchase commitments in 1981, plus a new demonstration program under which lump-sum mortgage interest grants can be provided in lieu of mortgage purchases. The combination of these two programs will support $2 billion of mortgages, the same amount supported in each of the past 3 years. From 1978 through 1981, this assistance will facilitate the development of an estimated 250,000 units of new or substantially rehabilitated multifamily housing with below-market interest rates. The new upfront mortgage interest grant proposal will compare the efficiency and effectiveness of this mechanism relative to the current GNMA "tandem" mortgage purchase and resale mechanism. The new approach requires less budget authority and has a less volatile effect on budget outlays and the deficit than the current tandem programs, under which the mortgages are not always resold immediately, but are sometimes held for resale when market conditions are more favorable. Net outlays for GNMA's credit activities, including losses on mortgage purchases, are estimated to be $1.0 billion in 1980 and -$0.4 billion in 1981. The negative outlay in 1981 reflects an estimate that mortgage sales will be greater than mortgage purchases. Mortgage credit— The Federal Housing Administration's (FHA's) mortgage and loan insurance programs provide assistance for families who are able to fulfill the obligations of a mortgage loan but who may not be adequately served by the private market. Insurance for mortgages with graduated payment schedules, which re- 184 THE BUDGET FOR FISCAL YEAR 1981 quire lower initial monthly payments, will continue to be made to assist young, first-time homebuyers. Heavy default rates experienced under some mortgage insurance programs in the early 1970's resulted in large increases in the FHA inventory of assigned mortgages and properties were acquired by HUD as a result of foreclosure. Improved economic conditions, better underwriting, HUD's lower-income housing assistance (section 8) and troubled projects operating subsidies programs should decrease the growth of this inventory. Efforts began in 1979 to increase the sale of multifamily properties now owned by FHA by using Section 8 rental assistance (classified as an income security program). The section 8 program induces the private market to rehabilitate properties not currently meeting minimum housing standards. In addition, HUD intends to increase its sales to achieve a 45% decline in the HUD inventory of assigned and acquired properties between the end of 1979 and the end of 1985. In 1980, a new program is proposed to protect homeowners from precipitous foreclosures when suddeh, uncontrollable reductions in income temporarily put them in default. This temporary mortgage assistance payments program will also prevent unnecessary additions to the assigned inventory due to temporary default problems. All of these factors are expected to result in a decline in outlays for FHA mortgage credit activities from $148 million in 1980 to —$70 million'in 1981. Loans insured under FHA programs are expected to total $21.7 billion in 1981, an increase of $2.9 billion from 1980. In addition, the administration will propose legislation to simplify and consolidate the currently cumbersome, complex and, in some instances, outmoded statutes governing FHA insuring and GNMA mortgage credit authorities. This effort to simplify the National Housing Act is long overdue and would make the services provided under the Act more accessible and more understandable to the American public. Housing for the elderly or handicapped.—In addition to supporting private market mortgage financing with FHA insurance, HUD provides direct loans to finance housing for the elderly or handicapped under the "section 202" program. The 1981 budget provides for $830 million of new loan commitments and continues emphasis on housing for the handicapped in the form of a $50 million setaside for nonelderly, handicapped households. Outlays for this program are estimated to be $700 million in both 1980 and 1981. Rural housing programs.—The Farmers Home Administration (FmHA) of the Department of Agriculture provides direct and guaranteed loan housing assistance to low- and moderate-income families in rural communities of less than 20,000 population. In addi- COMMERCE AND HOUSING CREDIT 185 tion, there is a rural rental assistance program to assist the tenants of FmHA-financed housing. A related program of grants to repair and rehabilitate inadequate single-family housing, and grants for labor housing and self-help housing are classified in the income security function. For 1981, the budget proposes $4.0 billion in new direct and guaranteed loans and $0.5 billion in budget authority for rural housing assistance payments. The latter amount is the budget authority needed over the entire life of the contracts planned to be entered into in 1981 by the Federal Government under the rural rental assistance and homeownership assistance programs. These totals represent a decrease of about $0.5 billion in insured and guaranteed loans from the enacted level for 1980. This decrease reflects a decision to reduce assistance to moderate and above moderate income families. The requested funds, which are directed primarily to the needs of lower-income families occupying inadequate housing, will provide assistance for about 131,000 rural housing units. The 1981 budget proposes to continue directing housing assistance under FmHA programs to those rural families which are most in need—low-income families and occupants of substandard housing. Outlays for FmHA housing programs in this function are estimated to decline from $1.8 billion in 1980 to -$1.0 billion in 1981. Receipts from sales of loans which are an offset to gross outlays, are responsible for the projection that receipts will exceed outlays in 1981. Banking and finance—A number of programs enhance the safety and soundness of the commercial banking system and affect its responsiveness to the needs of both savers and borrowers. The Comptroller of the Currency is the principal agency in the Federal Government responsible for the chartering, examination, and supervision of national banks. The Comptroller maintains an examination staff of over 2,500 to assure the liquidity and solvency of the national banking system. They conduct periodic onsite examinations of the commercial, trust, data processing, international, and consumer operations of each bank; and a legal staff interprets and administers the numerous banking laws. The Comptroller also serves as Chairman of the Federal Financial Institutions Examination Council, an interagency group consisting of all of the depository institution regulatory agencies. The Federal Deposit Insurance Corporation (FDIC) insures the deposits of all nationally and many State chartered commercial and savings banks. It also manages the assets of failed banks to assure the protection of depositors at minimum cost to the Federal Government. A trust fund currently in excess of $9 billion is available to meet its needs. 186 THE BUDGET FOR FISCAL YEAR 1981 The FDIC is responsible for the examination and supervision of federally insured commercial banks that are not members of the Federal Reserve system. These account for over 60% of all banks in the country and over 20% of all commercial banking assets. On May 22, 1979, the President transmitted a message to the Congress calling for reforms in depository institutions. These include the gradual elimination of restrictions on interest that can be paid to depositors at financial institutions; the authority for all federally insured institutions to offer interest bearing transactions accounts to individuals; and the use of variable rate mortgages subject to appropriate consumer safeguards- by all federally chartered savings institutions. The administration affirms the continued commitment to the flexibility in the banking system, the provision of market rate returns on the savings of small depositors, and the efficient functioning of our system of housing. In recent years a number of banks have left the Federal Reserve system. This has reduced the effectiveness of the Board's control over monetary policy. The administration continues to support legislation that would allow the Federal Reserve system to engage in the conduct of an effective monetary policy. Other mortgage credit and thrift insurance,—The National Credit Union Administration regulates credit unions and insures depositors' accounts. In 1980 from the National Credit Union Administration (NCUA) will perform more frequent supervisory reviews of credit unions in order to assist them in handling the loss of deposits due to high interest rates. The NCUA will assist in establishing community development credit unions. These credit unions will promote thrift, provide residents in poor communities access to credit at reasonable rates and provide other financial services that are difficult to obtain in impoverished neighborhoods. They will receive aid through low-interest loans, training, and other technical assistance from the Federal Government. The community development credit union program was proposed as part of the President's urban policy and was authorized by the Congress in 1979. The National Credit Union Administration began operating a new central liquidity facility on October 1, 1979. The new facility provides member credit unions with short-term loans for liquidity purposes. It is similar to the short-term liquidity provided to member commercial banks through the discount window of the Federal Reserve. During 1981, the central liquidity facility expects to lend $2.2 billion to member credit unions. The Federal Savings and Loan Insurance Corporation (FSLIC) insures deposits in savings and loan associations. In 1981, receipts of the FSLIC are estimated to exceed outlays by $0.6 billion. COMMERCE AND HOUSING CREDIT 187 Postal Service.—The Postal Reorganization Act of 1970 established the U.S. Postal Service as an independent part of the executive branch to replace the former Cabinet-level Post Office Department. The Act charges the Postal Service with providing prompt, reliable, and efficient mail services to patrons at reasonable rates and fees. Outlays for the general operations of the Postal Service are excluded from Federal budget totals, with the exception of the Federal subsidy payment. The payment covers certain liabilities of the former Post Office Department, public service costs that provide a direct postal subsidy, and revenue forgone for carrying certain classes of mail at free and reduced rates. A payment of $1.6 billion is requested for 1981, $0.1 billion below the amount appropriated for 1980. This change reflects a $92 million reduction in the public service subsidy and a $7 million increase in revenue forgone due primarily to expected increases in mail volume and adjustments in prior years' revenue forgone. The changes in both the public service subsidy and revenue forgone are scheduled to occur under existing law. The budget also includes a proposed $1 billion 1981 limitation on postal borrowing authority in consonance with the President's objective of establishing effective credit control procedures. The request for 1981 and future-year budget projections carry on the existing policy that postal costs should be largely borne by mail users and not by the general taxpayer. The off-budget outlays of the U.S. Postal Service reflect the difference between gross expenditures and gross receipts. Other advancement and regulation of commerce.—Many Federal programs provide technical assistance to and promote the development of new business. Other programs provide oversight of the economy and business community to assure fair and equal practices and opportunities. Small business assistance.—Net outlays for assistance to small business are estimated to total $0.9 billion in 1981. The budget request for the Small Business Administration (SBA) provides for $4.3 billion of new commitments for guaranteed business loans, which is $0.5 billion greater than the level of assistance available to the SBA in 1980. It is anticipated that the share of the SBA's direct business loans approved for minority-owned businesses in 1981 will increase by $40 million over 1980 levels. In 1981, the SBA is proposing a major restructuring of the direct and guaranteed business lending programs. The changes will permit the agency to shift to greater reliance on its guaranteed lending programs, and to target its direct loans more selectively to 188 THE BUDGET FOR FISCAL YEAR 1981 minority and women-owned firms. Legislation will be proposed to consolidate SBA's five business loan programs into one program, raise loan limits on its guaranteed loans from $500,000 to $750,000 and delegate additional loan review, approval, and liquidation functions to selected banks. These changes will substantively improve SBA's capability to serve the small business community. In addition to a move intensive targeting of its direct loans to minorities, the SBA will undertake a number of further initiatives in 1981 to assist minority-owned businesses. This includes the provision of expanded counseling assistance in support of the SBA's section 8(a) minority business development program. In addition, the budget proposes that funding for Minority Enterprise Small Business Investment Company (MESBIC) program be doubled. Direct assistance for minority capital development under the MESBIC program would grow from a current enacted level of $27 million in budget authority to $55 million in 1981. There are currently 100 MESBIC's certified by the SBA with the capability of pooling their resources to assist minority firms in pursuing possible acquisitions of other businesses. The MESBIC funding request will help promote these acquisitions and enable minority firms to take greater advantage of new and innovative market opportunities. As a further aid to minority business, the administration will seek legislation to provide a stautory base for the Commerce Department's existing Minority Business Development Agency, which is currently authorized by Executive order. The budget also includes funding in support of the President's women's business enterprise policy announced in May of last year. The SBA will undertake several new activities to foster the establishment, preservation, and strengthening of women's business enterprise. Direct loans targeted to women business owners are proposed to increase by 50% over the 1980 level. In addition, the SBA proposes to expand the availability of management training, counseling, and support services to both new and established womenowned firms. Projects are planned in a number of cities to improve the access of women entrepreneurs to credit and capital. In conjunction with these activities, an outreach effort to the financial community would encourage greater interest in serving women's businesses. Increased SBA funding is proposed to develop instructional materials to aid women business owners in working with the Federal procurement system and to enhance public awareness of the important role of women entrepreneurs in the economy. Emphasis will be placed on developing strong partnerships with the business community in achieving these goals. Federally guaranteed loans to the Chrysler Corporation.— To prevent the financial collapse of the Chrysler Corporation and the consequent resulting unemployment and economic disruption, the COMMERCE AND HOUSING CREDIT 189 administration proposed and the Congress has authorized up to $1.5 billion in federally guaranteed loans in 1980. The program is administered by a board consisting of the Secretary of the Treasury, the Chairman of the Federal Reserve Board, and the Comptroller General. Before making any Federal guarantees, substantial contributions or investments in the company are required of Chrysler's employees, suppliers, dealers, banks, and others with an economic stake in the company's continued existence. National Consumer Cooperative Bank.—The National Consumer Cooperative Bank began operations in 1979. The Bank is authorized to make loans at market interest rates to finance a wide variety of cooperatively-owned businesses. An adjunct to the Cooperative Bank, the Office of Self-help Development and Technical Assistance, was also created to provide new and existing cooperatives with technical assistance. This office will provide interest subsidies and capital advances to cooperatives that are not able to qualify for the Cooperative Bank loans. The Cooperative Bank began with Federal funding and will repay the Federal investment as its ownership is tranferred to the member cooperatives that borrow from the Bank. Eventually, the Cooperative Bank will be owned by its customers, and loans will be financed through debt issues on the private market. Technology utilization.—The President has announced several initiatives to enhance the rate of industrial innovation in the United States. In addition to the initiatives discussed in the general science, space, and technology function, the Department of Commerce will undertake the following activities: • encourage the flow of technical knowledge from Federal laboratories to the private sector, and from foreign countries to U.S. industry; • initiate a program to establish private sector centers to cooperate with industry in the development of basic technologies that apply to their manufacturing operations; • update and modernize the patent and trademark systems and improve the dissemination of patent information; and • foster the development of small, innovative firms by the establishment of two Corporations for Innovation Development, nonprofit corporations providing equity funding for firms that will develop and market promising, high-risk innovations. Economic and demographic statistics.—Budget outlays for the Bureau of the Census are estimated to decline from $618 million in 1980 to $283 million in 1981, primarily due to the completion of the decennial census in 1980. Approximately 40% of the total cost of 190 THE BUDGET FOR FISCAL YEAR 1981 the 1980 decennial census has supported data collection and other improvements, including a major effort to reduce the undercounting of the population especially among minority groups. Other.—The budget reflects reorganization changes proposed last year by the administration and accepted by the Congress. These changes will strengthen the Nation's capability to deal more effectively with international trade issues and problems. The reorganization transfers general operational responsibilities to the Department of Commerce from the State and Treasury Departments for international trade functions, including export development, commercial representation abroad, the administration of the antidumping and countervailing duty laws, export controls, and monitoring compliance with international trade agreements to which the U.S. is a party. This reorganization will assist in promoting the expansion of U.S. exports and enhance our capabilities to protect against unfair import competition. The Federal Financing Bank (FFB) is an off-budget entity under the supervision of the Treasury Department, created in 1973 to reduce the costs of Federal agency borrowing, to coordinate the financing of certain types of Federal credit assistance, and to promote a more orderly market for Federal debt securities, thereby lowering the cost of funds to the government. The FFB does not initiate programs but, rather, is solely a financing vehicle for other governmental programs. At the end of 1979, FFB holdings totaled $66 billion. These holdings are estimated to rise to $86 billion at the end of 1980 and $107 billion at the end of 1981. The off-budget outlays that the FFB incurs by purchasing, loan assets and by financing, loans that are guaranteed by other Federal agencies are shown as memorandum items to the outlay tables throughout this part of the budget document. In 1980, the FFB deposits to the Treasury of surplus income are estimated to be $253 million. Further discussion of the FFB is contained in Part 6 of the Budget and Special Analyses E and F in the Special Analyses volume of the Budget. Tax expenditures.—The tax system provides a variety of incentives for investment in equipment, commercial and industrial structures, and residential housing. The 10% tax credit for capital equipment generates a tax expenditure estimated at $20,0 billion in 1981. The new credit for the rehabilitation of industrial structures will generate an additional tax expenditure of $0.2 billion in 1981. Rapid depreciation using asset depreciation ranges and additional first-year depreciation of equipment are estimated to result in a 1981 tax expenditure of $3.7 billion. The depreciation of commercial structures at rates in COMMERCE AND HOUSING CREDIT 191 CREDIT PROGRAMS—COMMERCE AND HOUSING CREDIT (In millions of dollars) 1979 actual Program Mortgage purchase activity (GNMA): Direct loans: New loans Repayments, sales and adjustments ( - ) 1980 estimate 1981 estimate 1,492 -1,663 1,931 -1,327 1,760 -2,829 -170 604 -1,070 22,176 17,594 20,500 14,917 25,000 18,900 102 -254 277 -511 225 -499 -152 —234 -274 19,390 11,475 19,530 9,974 21,684 10,603 488 —7 740 -7 685 -9 481 733 676 4,797 -5,033 6,946 -5,787 6,429 —8,140 Net loan outlays -236 1,159 -1,711 Loan guarantees:* New loans Net loan guarantees 4,005 2,803 4,977 1,922 7,294 4,631 1,800 -1,500 2,200 -2,200 1 Net loan outlays 3 Loan guarantees*. New loans Net loan guarantees Mortgage credit (FHA): Direct loans: New loans Repayments, sales and adjustments ( - ) 1 Net loan outlays 3 Loan guarantees: New loans Net loan guarantees Housing for the elderly or handicapped: Direct loans: New loans Repayments, sales and adjustments ( - ) . Net loan outlays Rural housing programs: Direct loans: New loans Repayments, sales and adjustments ( - ) Central Liquidity Facility: Direct Loans: New loans Repayments, sales and adjustments ( — ) i 300 Net loan outlays National Consumer Cooperative Bank: Direct loans: New loans Repayments, sales and adjustments ( - ) 1 Net loan outlays 29 -3 156 -5 26 151 Loan guarantees: New loans Net loan guarantees Small Business assistance: Direct loans: New loans .. 5 4 567 608 752 THE BUDGET FOR FISCAL YEAR 1981 192 CREDIT PROGRAMS—COMMERCE AND HOUSING CREDIT—Continued (In millions of dollars) 1981 estimate 1980 estimate 1979 actual Program —357 -361 -382 210 247 370 3,813 748 4,693 1,153 5,152 1,130 940 940 312 312 50 -27 84 -43 40 -74 Net loan outlays 23 41 -34 Loan guarantees: New loans Net loan guarantees 77 62 103 80 118 75 16,045 -2,763 22,004 -5,755 23,941 -7,697 13,282 16,249 16,244 Repayments, sales and adjustments ( - ) 1 Net loan outlays Loan guarantees:2 Net loan guarantees Chrysler Corporation loans: Loan guarantees: New loans Net loan guarantees Other business assistance: Direct loans: New loans Repayments, sales and adjustments ( - ) Off-budget Federal entity—Federal Financing Bank: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays * Includes sales of direct loans. * Includes guarantees of sales of direct loans. excess of straightline rates will produce an estimated 1981 tax expenditure of $0.3 billion, and expensing construction period interest and taxes produces a tax expenditure estimated to be $0.7 billion in 1981. The cost of financing investment is also reduced by a number of tax preferences. The dividend exclusion produces a revenue loss estimated at $0.5 billion in 1981. Exclusion of interest on State and local industrial development bonds generates an estimated 1981 tax expenditure of $0.7 billion. Preferential treatment of capital gains produces two types of tax expenditures. Taxation of capital gains at less than the ordinary rates is estimated to reduce receipts by $15.7 billion in 1981, and failure to tax capital gains at death is estimated to reduce receipts by another $5.1 billion. Housing investment is encouraged by permitting deduction for mortgage interest and property taxes of owner-occupied homes. These deductions generate estimated 1981 tax expenditures of $14.8 COMMERCE AND HOUSING CREDIT 193 billion and $9.0 billion, respectively. Homeownership is also encouraged by the deferral of capital gains taxes on the sale of homes. This treatment is estimated to reduce 1981 receipts by $1.1 billion. Rental housing investment is encouraged by allowing depreciation in excess of straightline rates. The 1981 tax expenditure that results from this practice is estimated at $0.4 billion. There are also tax expenditures for specific types of business. Financial institutions receive tax expenditures estimated at $1.0 billion in 1981 because of the favorable tax treatment accorded excess bad debt reserves. Small businesses receive a tax preference because the first $100,000 of corporate income is taxed at less than 46%. In 1981, this provision will generate a tax expenditure of $7.5 billion. The income of credit unions is exempt from tax, producing a tax expenditure of $0.1 billion. Finally, permitting the deduction of interest on consumer debt produces an estimated tax expenditure of $4.2 billion in 1981. 194 THE BUDGET FOR FISCAL YEAR 1981 TRANSPORTATION National Needs Statement: • Develop and maintain a transportation system that meets the needs of commerce and the public in a safe, reliable, and increasingly efficient manner, • Insure that transportation policy and programs are consistent with the Nation's economic, environmental, and social goals, • Encourage energy conservation. Meeting the Nation's transportation needs requires a coordinated effort by the Federal Government, State and local governments, and the private sector of the economy. For its share, the 1981 budget proposes Federal support for: • highway improvement and construction; • mass transit construction equipment purchases, and operating assistance; • airway and airport capital improvements; • financial assistance to railroads; marine safety and environmental protection; and • safety for all modes of transportation. In addition to continuing its assistance for these major activities, the administration's 1981 budget emphasizes support for energy conservation and deregulation of several modes of transportation to help reduce our dependence on foreign oil and strengthen the economy. The administration has proposed a number of transportation initiatives to help meet our long-term energy and conservation needs. Over the next 10 years, funds totaling $16.5 billion would be made available for the following transportation energy initiatives: • public transportation investment; • auto-use management; • fuel economy standards improvement; and • cooperative basic automotive research. Budget authority of $1.3 billion is proposed for 1980 and $1.5 billion for 1981. These energy initiatives are further discussed in the section on ground transportation and in the energy section. In the past, Government regulation of transportation fostered the economic growth of various regions of the country, encouraged the growth of competing forms of transportation, and maintained stability within the industries. However, now that the Nation's transportation sector is fully matured, the emerging impor- TRANSPORTATION 195 NATIONAL NEED: BALANCED TRANSPORTATION SYSTEMS (Functional code 400; in millions of dollars} Major missions and programs BUDGET AUTHORITY Ground transportation: Transportation energy initiatives (proposed): Public transportation capital investment.. Auto-use management Fuel economy standards Cooperative automotive basic research.... Highway improvement and construction Highway safety Mass transit Railroads: Existing law Proposed legislation , Regulation 1979 actual 1980 estimate 1,076 200 6,955 1,578 2,427 7,271 1,825 2,235 2,319 2,202 1981 estimate 1982 estimate 1983 estimate 1,222 250 8 20 7,414 2,101 3,887 1,372 250 22 55 6,546 1,708 4,051 1,372 250 27 75 8,150 1,729 4,542 1,695 400 88 1,503 325 91 73 80 1,798 250 85 Subtotal, ground transportation 13,351 14,890 17,035 16,186 18,063 Air transportation: Airways and airports Aeronautical research and technology Air carrier subsidies Regulation 3,145 519 73 28 3,245 570 96 30 3,473 543 86 29 3,698 534 84 29 3,875 561 75 29 Subtotal, air transportation 3,765 3,941 4,131 4,345 4,539 Water transportation: Marine safety and transportation Ocean shipping Regulation 1,532 522 11 1,651 488 12 1,826 555 12 1,906 713 12 2,006 766 12 2,065 2,151 2,393 2,631 2,784 Subtotal, water transportation Other transportation Deductions for offsetting receipts Total, budget authority 91 98 113 116 120 -67 -70 -55 -54 -54 19,204 21,009 23,618 23,224 25,452 tance of energy conservation gives rise to the second transportation theme in the 1981 budget: transportation deregulation. The administration continues to support the elimination of outdated and unnecessary regulatory controls to encourage the transportation industries to increase operating efficiencies and to respond better to the competitive market. To meet this objective, the administration urges the Congress to enact major railroad and trucking regulatory reforms by June 1980. Ground transportation.—The budget includes outlays of $13.8 billion in 1981 for programs to support the Nation's network of highways, railroads, and mass transit in a safe, reliable, and efficient manner. This is $237 million above the 1980 level. THE BUDGET FOR FISCAL YEAR 1981 196 NATIONAL NEED: BALANCED TRANSPORTATION SYSTEMS—Continued (Functional code 400; in millions of dollars) Major Missions and Programs OUTLAYS Ground transportation: Transportation energy intitiatives (proposed): Public transportation capital investment.. Auto-use management Fuel economy standards Cooperative automotive basic research.... Highway improvement and construction Highway safety Mass transit Railroads: Existing law Proposed legislation Regulation 1979 actual 1980 estimate 50 50 1981 estimate 1982 estimate 1983 estimate 425 180 4 8 7,045 1,465 2,801 745 240 18 30 7,425 1,528 2,986 1,005 250 22 55 7,670 1,555 3,472 1,734 213 88 1,698 348 89 6,759 733 2,542 7,116 1,243 2,712 1,962 2,321 67 79 1,756 40 84 Subtotal, ground transportation 12,064 13,571 13,808 15,007 16,166 Air transportation: Airways and airports Aeronautical research and technology Air carrier subsidies Regulation 2,850 443 72 27 3,124 532 94 30 3,297 554 87 29 3,446 580 84 29 3,706 578 75 29 Subtotal, air transportation 3,392 3,779 3,967 4,138 4,388 Water transportation: Marine safety and transportation Ocean shipping Regulation 1,424 543 10 1,570 668 12 1,728 590 12 1,801 603 12 1,885 651 12 1,977 2,250 2,330 2,417 2,549 93 102 109 109 115 —67 -70 -55 -54 -54 23,163 .Subtotal, water transportation Other transportation Deductions for offsetting receipts Total, outlays ADDENDUM Off-budget Federal entity: U.S. Railway Association: Budget authority Outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Railroads 17,459 19,631 20,159 21,617 59 89 68 68 71 68 75 75 80 80 - 2 5 305 241 235 -51 Transportation energy initiatives.—The administration proposes to use $16.5 billion for energy-related transportation initiatives over the next 10 years, including $1.5 billion in budget authority for 1981. The proposed public transportation capital investment program would increase capacity and improve services. Grants would be TRANSPORTATION 197 provided to States and cities that have adopted specific energy conservation plans. Each major project to be funded would have to be consistent with these plans and would be required to show high probability of producing significant energy savings at a reasonable cost. Public transportation improvements are needed to insure that the Nation's transit systems can accommodate more passengers in the short term in response to energy shortages. Over the longer term, these investments are needed to make public transportation an attractive and acceptable alternative to the single-occupant automobile. Budget authority of $1.1 billion is proposed for 1980 and $1.2 billion for 1981. The proposed auto-use management program consists of grants to State and local governments to achieve energy savings by providing attractive alternatives to the use of single-occupant automobiles. This program would: • increase the Federal share from 75% to 90% for highway related projects that encourage energy efficiency; • finance projects that have particularly high potential for reducing the amount of fuel Americans use in automobile travel; • purchase equipment that could monitor fuel economy as part of routine vehicle inspection and maintenance programs; and • measure and enforce compliance with the 55 miles per hour speed limit. A supplemental appropriation of $200 million for 1980 and an appropriation of $250 million for 1981 are proposed to begin the auto-use management program. The fuel economy standards improvement program would study the availability of technologies to improve the fuel efficiency of motor vehicles. Specific projects would be directed toward improved engines, drive trains, and structural design; fuel-efficient light trucks and 2-passenger urban vehicles; and studying the market for more fuel-efficient vehicles. The cooperative basic automotive research program would be a joint effort between a number of Federal agencies and the automotive industry to advance basic scientific knowledge for the development of energy-efficient, safe, and environmentally acceptable technologies for the next generation of motor vehicles. Budget authority of $20 million is requested for 1981. Highway improvement and construction.—Major highway programs will continue to focus on the adequacy of the Nation's highway system. The administration continues to support accelerating the completion of the Interstate highway system and providing maximum flexibility in the use of Federal money for either highway or transit programs. The budget proposes focusing highway 198 THE BUDGET FOR FISCAL YEAR 1981 construction funds on those programs that are clearly of national interest and that require Federal support to undertake. The budget does not propose separate funding of a number of smaller highway programs that can be funded by existing categorical grant programs. In providing multi-year authorizations for highway construction, the Congress reduced the highway funds for 1982. The budget incorporates this congressionally-approved lower level for 1982. The budget assumes increased funding beginning in 1983, when new authorization will be required. Steps will be taken to assure that urban areas are not adversely affected by the Federal highway program. Major new highway projects will be evaluated on the extent to which they: • reduce urban sprawl and the movement of jobs away from the Nation's urban centers; • rehabilitate existing facilities and provide alternatives to new highway construction; • minimize negative effects on both the natural and urban environment; and • promote energy conservation through incentives such as special lanes for buses and carpools. Highway safety.—Motor vehicle accidents are the leading cause of death for persons between 15 and 45 years of age. Each year approximately 50,000 lives are lost and 2,000,000 injuries occur on our Nation's highways. The administration continues to emphasize funding of highway safety programs to reduce the number of highway deaths and injuries. Outlays for these programs are expected to reach $1.5 billion in 1981, a doubling of the program over 2 years. The national highway safety program focuses regulatory and grant activities on improving vehicle and highway safety programs. In 1981, emphasis will be placed on the safety design of light trucks and vans, and to State enforcement of the national 55 mile per hour speed limit. Highway safety programs will focus on rehabilitating or replacing unsafe bridges and on construction activities to eliminate highway hazards. Mass transit —Including the energy initiative, Federal, State, and local funding for transit capital improvements is projected to be $52 billion during the 1980's, including $2.1 billion recently approved for Washington Metro. In comparison, about $15 billion was spent on mass transit capital improvements by all levels of Government in the 1970's. Including proposed legislation, $5.2 billion in obligations is requested for mass transit in 1981. This is $0.3 billion above the level currently proposed for 1980. Programs for mass transit include: TRANSPORTATION 199 • capital improvement assistance for construction and rehabilitation of transit facilities and the purchase of new equipment; • operating assistance for labor, fuel, management, and maintenance expenses; and • research, development, and demonstration of new technologies and operating, management, and marketing techniques. The administration is committed to rapid expansion of the Nation's transit bus fleet, and to increasing Federal support for bus replacement and modernization and expansion of bus facilities. The budget would increase dramatically the funds available for these purposes. Increased bus service is the quickest and most flexible way to use mass transit to save energy. The administration also intends to reduce the procedural problems that hinder the expeditious procurement of buses. The administration is proposing that funds be devoted to expedite the completion of those rail transit system segments (in Miami, Baltimore, Atlanta and Buffalo) for which the Federal Government has pledged support in letters of intent. Cities with existing rail transit systems will receive increased assistance from the energy initiative to modernize and, in some cases, extend their systems. The Congress recently enacted a separate authorization for completing the Washington Metrorail system. In future years funding will be requested under this authority provided that reliable sources of revenue are provided by the Washington area jurisdictions to help support the operating costs of the regional transit system. Commitments to fund new fixed guideway transit systems or extend present systems will depend upon thorough review of the merits of each project and the alternatives available. Criteria for reviewing and judging the extent to which each project meets the Nation's urban transportation needs will be developed. In particular, the energy-saving potential of any proposed project, including consideration of the energy used in construction, will be one determinant of whether the project is approved. The administration also proposes to increase Federal mass transit operating subsidies as part of its overall energy-conservation strategy. Budget authority of $1.2 billion is proposed for 1981 to support those urban formula grants that can be used for operating expenses. This is an increase of 8.6% over the 1980 level. Most of the increase will go to cities with extensive transit networks. Railroads.—Federal financial support of the railroads is primarily a phenomenon of the 1970's, resulting from the collapse of 200 THE BUDGET FOR FISCAL YEAR 1981 railroads in the Northeast and Midwest. The Penn Central, Milwaukee, and Rock Island Railroads bankruptcies are the most notable examples. The 1981 and subsequent budgets will focus Federal aid on rebuilding the industry's health. Excluding investment in Conrail, 1981 budget authority for assistance to railroads is $0.2 billion, or 13%, above the 1980 level. In addition, the administration's legislative program includes deregulation of the rail industry, without which increasing Federal subsidies can be anticipated in future years to prevent the abandonment of rail services. Historically, the Government has tended to use the railroad industry to promote economic development, often keeping rates at unrealistically low levels. Furthermore, the standards used to judge the need for, and level of, rail service have not been adequately adjusted for changes in the economy and growth of truck and barge transportation. Inefficient practices have also reduced railroad revenues, and contributed to the overall decline of the railroad industry, The administration has concluded that the railroads cannot continue absorbing the cost of outdated and inefficient regulatory practices. To do so would likely lead to increased rail bankruptcies and, ultimately, to even greater demands for massive Federal subsidies to preserve activities the market has determined are not viable. The administration has already proposed substantial deregulation of the railroads. The administration's rail deregulation proposal would insure an orderly transition to a less-regulated environment. It would allow the railroads to base their rates more closely on the actual cost of operations, compete more effectively with other transportation modes, and eliminate some services that currently operate at a loss. The Nation needs transportation industries that are responsive to the demands of today's economy, and deregulation is the best way of making them responsive. The administration urges prompt legislative action on its deregulation proposal. The experience of Conrail illustrates the hardships that the rail industry is experiencing as a result of outmoded regulatory practices. To date, $3.3 billion in direct Federal loans and investment in preferred stock has been authorized for needed operating subsidies and capital improvements in Conrail. The administration is requesting an appropriation of the final $185 million of that authorization in 1981. However, Conrail has indicated that it cannot become self-sufficient within the existing authorization unless basic rail regulatory reform legislation is enacted and operating efficiencies are carried out. The administration believes that enactment of strong rail deregulation is critical to Conrail's financial future. In May of last year, the administration proposed a 5-year authorization of $1.5 billion to support freight rail restructuring for rail- TRANSPORTATION 201 roads other than Conrail. For 1981 the administration is requesting the first $250 million in budget authority of this authorization to provide repayable credit and other forms of direct rail assistance. In addition, authority to guarantee over $300 million of loans is requested, along with $85 million in grants to States for rehabilitation of rail lines. These funds would enhance the ability of the railroads to provide more efficient and reliable rail services by eliminating redundancy in the rail system and by promoting labor productivity. Assistance in restructuring rail service in those geographic areas covered by the bankrupt Rock Island and Milwaukee Railroads will be a special priority in 1981. Special consideration will also be given to rail improvements that support movement of energy resources, especially coal. Assistance to intercity rail passenger service takes the form of subsidy to the National Railroad Passenger Corporation (Amtrak), and grants for capital improvement in the Northeast Corridor. Federal subsidies in 1981 for Amtrak will total $975 million, as Amtrak enters its second year of operating a more efficient route structure than it had during the 1970's. Amtrak fares covered only 38.5% of the cost of train service in 1978. It is expected that Amtrak will be able to increase the percent of operating costs covered by revenues to 42 or 43% in 1981 and 50% by 1985. This increase will result from ending service on the least cost-effective routes (18% of the routes served were dropped in October 1979), better scheduling, using more reliable equipment, and sustaining the growth in train ridership now resulting from the increasing cost of alternative means of transportation. Ridership growth and ticket price increases are expected to increase Amtrak revenues to over $500 million in 1981. The Northeast Corridor improvement program to improve rail service between Washington, D.C., New York, and Boston is to be completed in 1984. The budget assumes an additional authorization of $750 million, which would bring the total amount authorized to $2.5 billion. Regulation.—In 1979, the administration proposed legislation to improve competition in the trucking industry. The industry is partially deregulated at present, and the additional reform would increase the efficiency and lead to price savings for consumers and energy savings for the Nation. Congressional action is expected by mid-1980. Air transportation.—To provide a safe and reliable air transportation system, the Federal Government will spend an estimated $4.0 billion in 1981 compared with $3.8 billion in 1980. In addition, approximately $400 million in private credit for aircraft acquisition 202 THE BUDGET FOR FISCAL YEAR 1981 will be guaranteed in 1981, which is similar to the level of demand expected in 1980, Airways and airports.—The primary mission of the Federal Aviation Administration (FAA) is to facilitate the safe movement of air traffic. The 1981 budget requests $3.3 billion in budget authority and 195 new safety inspectors to permit the FAA to continue to improve and expand aircraft safety inspections and review of airline maintenance and safety procedures. Increasing the number of air traffic controllers by 412 to 23,600 will enable the FAA to maintain airspace safety in the face of continued expected growth in aviation traffic. The FAA will continue replacing older navigation and traffic control equipment with solid state technology. The budget proposes to expand substantially the number of airports equipped with instrument landing systems. Budget authority of more than $85 million is requested to purchase computer and other equipment for flight service stations to provide improved aviation, weather, and flight plan services to pilots. The administration has proposed legislation to extend the airport and airway trust fund from 1981 through 1985. The programs financed by this fund will expand the capacity and safety of the airport and traffic control system to handle the expected rapid growth in air transportation—growth that is partly attributable to the recent deregulation of the airline industry. The proposed budget authority for 1981-85 totals $14.6 billion. This total includes $8.0 billion for increased user financing of the FAA's cost of operating the airway system, $4.0 billion for airport development grants and planning, $2.1 billion for facilities and equipment, and $0.5 billion for research and development. The administration has also proposed changes in user taxes that sustain the trust fund to provide a better balance between the sources of revenue and the groups that benefit from the various trust fund programs. Aeronautical research and technology.—NASA's aeronautical research and technology programs will continue to provide a sound technological base for increasing the safety, efficiency, and performance of civilian and military air transportation systems, and to maintain U.S. leadership in aeronautical technology. The budget requests $0.5 billion in budget authority, and emphasizes the development of new technology to improve the performance of civil and military helicopters and to develop quieter, less polluting, and more efficient aircraft engines. The aircraft energy efficiency program would be augmented by an initiative for developing advanced turboprop technology that could improve fuel efficiency by more than 20% over currently used aircraft engines. A separate initiative involves studying the combuster parts of turbine engines for ways to improve their durability and performance. TRANSPORTATION 203 Air carrier subsidies.—Under the terms of the Airline Deregulation Act of 1978, the Civil Aeronautics Board (CAB) will continue to provide Federal assistance to certified carriers that operate routes eligible for subsidy. Moreover, the CAB's new subsidy program guarantees essential air services to small communities now served by certified carriers. Commuter airlines serving these small communities are eligible to receive funds under this subsidy program, and are also eligible to receive loan guarantees for the purchase of aircraft. The administration believes commuter airlines can effectively replace larger airlines in serving small communities by providing more frequent and convenient service. Regulation.—Administration initiatives enacted by the Congress led to effective deregulation of the domestic airline industry. The administration also favors a pro-competitive international aviation policy and supports legislation to create a statutory framework emphasizing competition for the international aviation activities of the Federal Government. While domestic deregulation has clearly shown that it can lead to reduced fares, increased traffic, and higher industry profits, these benefits are expected to be partially offset by soaring fuel costs. Water transportation,—In order to meet the need for a competitive U.S. merchant marine and to maintain a safe, reliable, and efficient marine transportation system, the budget proposes $2.3 billion in outlays for water transportation programs in 1981, compared with $2.2 billion in 1980. Marine safety and transportation.—The Coast Guard provides a variety of services to the marine and general boating public that enhance the safe, efficient, and enjoyable use of the Nation's waterways. These services include search and rescue of persons in distress, maintenance of navigation aids, prevention and clean up of marine pollution, and the. enforcement of laws concerning the safety of vessels and the conservation of ocean fisheries. The budget includes $1.8 billion in budget authority for these programs in 1981. Funding levels in the 1981 budget permit the Coast Guard to continue both scheduled replacement of older cutters and aircraft, and increase programs to improve operational efficiencies and safety. Expanded efforts to upgrade and modernize many Coast Guard training and shore facilities will also be undertaken. As our Nation expands its efforts to increase domestic production of energy, offshore drilling and exploration will increase. The Coast Guard is increasing its inspection capability for offshore drilling rigs, both to assure the safety of drilling personnel and to confirm that adequate precautions are taken by industry so that oil spills 204 THE BUDGET FOR FISCAL YEAR 1981 do not create serious threats to the environmental and commercial health of our shorelines. In 1981 the Coast Guard will take over from the Navy full responsibility for the operation of OMEGA, a world-wide navigation system. Ocean shippingDirect subsidies are provided to the U.S. merchant marine and shipbuilding industry to offset higher U.S. costs that otherwise would encourage American ship operators to build their vessels in foreign shipyards and operate them under foreign registry. Outlays for this program are estimated to be $556 million for 1981. Indirect support is provided to the maritime industry in the form of loan guarantees and Government cargo preference rules. (These rules require that all military ocean shipments and half of all non-military ocean shipments of Government-sponsored cargoes be made aboard U.S. flag vessels.) In 1981, an estimated $1.5 billion in ship construction loan commitments will be guaranteed by the Federal Government. The cost to the Federal Government of the cargo preference rules is estimated to be approximately $110 million in 1981 outlays. Despite continuing Federal subsidies, the U.S. merchant marine faces an increasingly uncertain future. To help reverse the existing unfavorable trend and to promote the industry more effectively, the administration has proposed legislation to reorient the subsidy programs toward the growing market in the transportation of bulk commodities. It has also been reviewing legislation introduced in Congress that is designed to reform both the shipping statutes administered by the Federal Maritime Commission and the promotional programs administered by the Maritime Administration in the Commerce Department. On October 1, 1979, the Panama Canal Commission—a new Federal agency—took over operation of the canal. The Commission is required to generate sufficient revenues to cover all costs over the life of the treaty thereby eliminating the need for support from taxpayers. Unlike the predecessor Panama Canal Company, the Commission will not provide related commercial services to canal users and employees. Commercial services will be provided largely by the Government and private businesses of Panama. The deferral of income taxes on shipping companies results in a tax expenditure estimated at $70 million in 1981. TRANSPORTATION 205 CREDIT PROGRAMS—TRANSPORTATION (In mittens of dollars) PfC't^iT! Highways and mass transit: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Net loan guarantees 1979 actual 1981 estimate 1980 estimate -106 — 12 — 106 -12 * * - 1 -1 84 2 104 2 175 2 Net loan outlays 86 105 177 Loan guarantees; New loans Net loan guarantees 213 40 332 308 322 305 29 -30 10 -4 250 -241 6 9 Aid to railroads: Direct loans: New loans Repayments, sales and adjustments ( - ) Assistance to ocean shipping: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays - 1 - 1 Loan guarantees: New loans Net loan guarantees 497 266 763 515 1,500 1,209 Aircraft loan guarantees: Loan guarantees: New loans Net loan guarantees 8 — 17 402 387 400 360 Off-budget Federal entity—U.S. Railway Association: Direct loans: New loans Repayments, sales and adjustments ( - ) 53 -23 22 —22 22 -25 Net loan outlays •$500 thousand or less. 30 —3 206 THE BUDGET FOR FISCAL YEAR 1981 COMMUNITY AND REGIONAL DEVELOPMENT National Needs Statement: • Promote the development, maintenance, or redevelopment of economically and socially viable neighborhoods in urban, suburban, and rural areas, • Develop a partnership among Federal, State, and local governments and the private sector to assist in the stabilization and revitalization of economically depressed or declining areas. • Provide relief to areas that suffer from natural disasters. The administration continues to place a strong emphasis on revitalizing economically depressed and declining areas through a partnership among Federal, State and local governments and the private sector. This partnership is essential to the administration's urban and rural development policies, since Federal resources alone cannot revitalize economically depressed or declining areas. Budget authority for community and regional development is proposed to increase from $9.0 billion in 1980 to $9.8 billion in 1981. This increase reflects the administration's commitment to this national need as announced by the President in his urban and rural policy statements. Outlays are expected to increase from $8.5 billion in 1980 to $8.8 billion in 1981. Federal programs in this area were selectively increased in 1980. The budget continues a policy of selective increases and proposes increases for those programs that advance the Federal partnership with State and local governments and the private sector and that direct Federal resources to areas with the greatest need and potential for improvement. Therefore, Federal resources are focussed on two key objectives: • increasing the capability of State and local governments to provide those public services essential to the revitalization of their neighborhoods and communities; and • providing more effective support for private sector economic development, thus increasing the competitiveness of the U.S. economy and the economic vitality of local areas, particularly those areas facing economic stress. To achieve these objectives, the budget proposes to: • increase funding for the Economic Development Administration's (EDA) development finance activities from $0.5 billion in 1979 to $1,1 billion in 1980 and $1.2 billion in 1981; • increase EDA's authority to guarantee development loans to $0.9 billion in 1980 and $1.6 billion in 1981; COMMUNITY AND REGIONAL DEVELOPMENT 207 • increase the community development block grant program by $150 million; • maintain the urban development action grant program at its enhanced 1980 funding level of $675 million; and • continue support for neighborhood-oriented programs, including a 50% increase in budget authority for the neighborhood self-help development grants and increased funding for housing rehabilitation activities of the Neighborhood Reinvestment Corporation. NATIONAL NEED: COMMUNITY AND REGIONAL DEVELOPMENT (Furctixa! code 4SO, in millions of deters) Major missions i t i prolans BUDGET AUTHORITY Community development Community development block grants Urban development action grants Rehabilitation loans Neighborhood self-help Neighborhood Reinvestment Corporation Pennsylvania Avenue development Other programs Subtotal, community development 1979 actual 1SS0 estimate 19S1 estimate 1982 estimate 1983 estimate 65 318 3,900 675 135 10 12 40 332 3,950 675 188 15 13 38 350 4,100 675 207 15 15 48 357 4,250 675 208 15 17 43 373 4,770 5,103 5,230 5,417 5,580 1,034 538 11 20 704 1,138 723 1,241 832 1,273 909 1,325 50 150 150 150 1,063 5 522 124 -401 1,105 5 550 131 -281 3,750 400 232 5 Area and regional development: Rural development and business assistance. Economic development assistance Local public works Inland energy impact assistance Indian programs: Existing law Proposed legislation Regional commissions Other programs Offsetting receipts 1,013 1,037 492 155 -305 486 175 -406 1,005 5 496 146 -413 Subtotal, area and regional development 2,957 3,184 3,353 3,569 3,895 Disaster relief and insurance: Disaster loans Federal emergency management activities... Drought assistance and other 1,235 1,020 10 44 628 15 181 1,092 10 210 514 10 225 506 10 Subtotal, disaster relief and insurance 2,266 687 1,283 734 741 -23 -25 -25 -26 -26 8,950 9,840 9,694 10,191 Deductions for offsetting receipts Total, budget authority 9,969 Community development—A variety of Federal programs, administered by several agencies, support the mission of community development by providing Federal grants, loans, loan guarantees, and technical assistance to States and localities. Outlays for this mission are estimated to rise from $4.5 billion in 1980 to $5.0 billion in 1981. THE BUDGET FOR FISCAL YEAR 1981 208 NATIONAL NEED: COMMUNITY AND REGIONAL DEVELOPMENT—Continued (Functional code 450; in millions of dollars) Major missions and programs OUTLAYS Community development: Community development block grants Urban development action grants Rehabilitation loans Neighborhood self-help Neighborhood Reinvestment Corporation Pennsylvania Avenue development Other programs Subtotal, community development 1980 estimate 1979 actual 1981 estimate 1982 estimate 1983 estimate 29 631 3,500 180 170 9 12 44 604 3,805 365 190 10 13 40 539 3,850 610 217 18 15 44 484 3,975 660 197 18 17 38 415 3,995 4,519 4,963 5,238 5,319 669 656 784 874 931 431 551 16 358 34 10 802 43 200 53 62 1,093 1,175 71 55 154 45 160 904 5 478 144 -401 952 5 496 134 -281 3,161 73 100 Area and regional development: Rural development and business assistance. Economic development assistance: Existing law Proposed legislation Local public works Coastal energy impact assistance Inland energy impact assistance Indian programs: Existing law Proposed legislation Regional commissions Other programs Offsetting receipts 805 846 418 130 -305 430 199 -406 856 5 458 170 -413 Subtotal, area and regional development 3,899 2,695 3,020 3,377 3,617 Disaster relief and insurance: Disaster loans Federal emergency management activitiesDrought assistance and other 957 617 36 626 627 26 200 646 17 230 579 15 245 744 10 Subtotal, disaster relief and insurance 1,611 1,278 863 824 999 -23 -25 -25 -26 -26 Deductions for offsetting receipts 1,741 11 * 9,482 8,467 8,820 9,413 9,910 ADDENDUM Off-budget Federal entity—Rural Telephone Bank: Budget authority Outlays 106 101 156 150 150 144 106 101 156 150 MEMORANDUM—Attribution of Federal Financing Bank outlays Community development Rural development 5 830 157 992 Total, outlays 264 1,075 243 646 52 646 *$500 thousand or less. Community development block grants.—The Housing and Community Development Act of 1974 consolidated a number of sepa- COMMUNITY AND REGIONAL DEVELOPMENT 209 rately funded HUD programs of the Department of Housing and Urban Development (HUD) into the community development block grant program. This program substantially improved and simplified the delivery of Federal community development assistance to local governments by offering a single flexible source of Federal assistance to support a wide range of activities based on local priorities. Activities funded under this program include property acquisition, construction of public facilities, rehabilitation of buildings, provision of social services, planning and management, and economic development, all primarily for the benefit of low- and moderate-income people. Funds are allocated to large communities by an entitlement formula, and to small communities through competition on the basis of objective measures of need. As in the past 2 years, the Administration is proposing that the budget authority for the community development block grant program be increased $150 million, from $3.8 billion in 1980 to $3.95 billion in 1981. However, unlike previous years, the Administration will not request additional budget authority for the categorical program financial settlement fund (funded at $100 million in 1980), which provided funds for the financial settlement of projects begun under the categorical programs replaced by the community development block grant program. Available resources from the 1980 appropriation and other sources will be used to make financial settlements on the remaining projects. In addition, total loan guarantees under the block grant program (section 108) are being increased from about $30 million in 1979 to an estimated $200 million in 1980 and $300 million in 1981. Outlays, which reflect the rate at which local governments carry out their projects, are expected to increase from $3.5 billion in 1980 to $3.5 billion in 1981. Urban development action grants.—Under this HUD program, originated by this Administration in 1978, severely distressed cities and urban counties receive discretionary grants to supplement local government and private sector financing for major economic development and neighborhood revitalization projects. As a major element of the President's urban policy, funding for the program has increased from $400 million in 1979 to $675 million in 1980. The 1981 budget continues the Administration's strong commitment to this program by requesting another $675 million in budget authority for the action grants. Outlays for the program are estimated to rise from $180 million in 1980 to $365 million in 1981. Rehabilitation loan program.—This HUD program offers subsidized loans to rehabilitate residential and commercial structures in specified areas. New commitments of $240 million are proposed for 1981, an increase of $25 million over 1980. The 1981 request will 310-000 n . on . It 210 THE BUDGET FOR FISCAL YEAR 1981 finance the rehabilitation of about 13,200 single-family dwellings and 6,000 multi-family units. Outlays are estimated to increase from $170 million in 1980 to $190 million in 1981. Neighborhood self-help.—The budget continues to support the neighborhood-oriented programs established by this administration in HUD. Budget authority of $15 million is requested for the neighborhood self-help development program in 1981, a 50% increase over the 1980 level. This program provides Federal grants to voluntary, nonprofit neighborhood organizations for specific revitalization projects in declining neighborhoods. The Neighborhood Reinvestment Corporation.—This public corporation, established last year, has been successful in forming working partnerships among residents, local governments, and financial institutions for neighborhood revitalization. The Corporation plans to expand its neighborhood housing services program to more than 180 neighborhoods by the end of 1981. Budget authority of $13.4 million is requested for 1981, $1.4 million above the 1980 level. Pennsylvania Avenue development—The budget requests $38 million in budget authority in 1981 for the Pennsylvania Avenue development plan to revitalize downtown Washington, D.C. The first major commercial and public development projects began in 1979, with additional growth in 1980. Development will continue under the direction of the Pennsylvania Avenue Development Corporation in cooperation with private enterprise. Outlays for land acquisition and public development activities are estimated at $40 million in 1981. Other programs.—Several other programs contribute to community development. Two of the larger programs are the comprehensive planning grant and urban homesteading programs administered by HUD. Comprehensive planning grants, established by the Housing Act of 1954, provide funds to States, local governments, and areawide organizations for planning and management. Legislation will be proposed to relate planning more directly to the allocation of Federal and State funds. Budget authority of $40 million is proposed for this program in 1981. The urban homesteading program, which transfers properties to local governments for use in locally administered programs of residential-area revitalization, will expand to allow for the transfer of properties owned by the Veterans Administration and the Farmers Home Administration, as well as HUD. This expansion will improve coordination in residential areas where properties are presently held by three separate agencies. Carryover balances from COMMUNITY AND REGIONAL DEVELOPMENT 211 prior years will be used to reimburse agencies for the homesteading properties transferred. Area and regional development—Programs in this mission support rural and urban development, American Indian tribal governments, and multistate regional development through the Appalachian Regional Commission and other regional commissions. Rural development and business assistance.—The Department of Agriculture administers a variety of programs aimed at developing rural areas. The 1981 budget provides for: • $700 million in direct loan obligations for water and waste disposal systems; • $240 million in direct loan obligations for community facilities; • $926 million in loan guarantee obligations for business and industrial development; • $284 million in budget authority for water and waste disposal grants; and • $15 million in budget authority for development and planning grants. Rural areas can also receive assistance for sewer, water, and community facilities from the Environmental Protection Agency's waste treatment grant program and the Housing and Urban Development's community development block grant program. The Department of Agriculture's community facility programs are limited to communities with a population of less than 10,000, while industrial development loan guarantees are available in communties of less than 50,000 population. These and other Federal programs will support the President's small community and rural development policy, announced in December 1979. This policy recognizes the different needs and problems of rural America, and the importance of local priorities and local decisionmaking. Outlays for rural programs are estimated to increase from $656 million in 1980 to $784 million in 1981. Economic development.—The Economic Development Administration (EDA) assists States, rural and urban communities, and Indian tribes in efforts to foster economic development and provide permanent employment opportunities in distressed areas. EDA assistance includes grants for State and local planning, technical assistance to public and private organizations, and construction of public facilities. It also includes direct loans and guaranteed loans for public works and business development. Legislation was submitted last year that would greatly improve EDA's ability to address the economic development and adjustment problems of rural and urban areas. This legislation, which is pro 212 THE BUDGET FOR FISCAL YEAR 1981 posed to become effective in 1980, would streamline eligibility requirements and tighten the targeting of EDA resources on distressed areas. It would also consolidate the fragmented authorities under which assistance is now provided. Further, it would combine EDA's existing business loan and guarantee programs with the development of financing incentives that were formerly contained in the National Development Bank proposal, which included loan guarantees, direct loans, and interest subsidies to induce private sector investment in economically distressed areas. These changes, coupled with an ongoing program of planning grants to public agencies, will help to create a more effective public and private partnership for economic development. For these programs the budget requests budget authority of $1.1 billion in 1980 and $1.2 billion in 1981. In contrast, EDA programs were funded at a level of $0.5 billion in 1979, For loan guarantees, the budget requests authority of $0.9 billion in 1980 and $1.6 billion in 1981. Outlays for economic development assistance in 1981 are estimated to increase by $278 million. Coastal energy impact assistance.—This program provides grants and loans to State and local governments to assist them in planning and financing public facilities and services required as a result of energy development activities in or near coastal areas, such as Outer Continental Shelf (OCS) oil and gas developments. In addition, grants are provided to States to help them participate in OCS leasing decisions. No budget authority is requested for the program in 1981 because an estimated $62 million will be available in 1981 for loans and grants from prior-year appropriations. For 1980 and 1981 an estimated total of $133 million will be obligated for Federal grants and loans. Outlays are estimated to rise from $34 million in 1980 to $53 million in 1981. Inland energy impact assistance.—This program provides grants to areas adversely affected by rapid energy development. Budget authority is proposed to increase from $50 million in 1980 to $150 million per year starting in 1981. The increased funding depends upon enactment of legislation authorizing State revolving funds and loan guarantees to extend coverage of the program to a broader range of energy projects. Assistance is provided by the Department of Energy and administered by the Farmers Home Administration. Indian programs,—The major objectives of Federal Indian policy are: to meet the trusteeship responsiblities of the U.S. Government, to increase self-determination for American Indian tribal governments, and to encourage economic development on Indian reservations. To further these objectives, the Indian Self-Determination COMMUNITY AND REGIONAL DEVELOPMENT 213 and Education Assistance Act of 1975 enables the Bureau of Indian Affairs (BIA) to enter into contracts so that Indian communities can administer the Federal programs serving them. Approximately $190 million of BIA programs are covered by such contracts. The Federal Government provides grants, training, and technical assistance to strengthen tribal management and planning abilities. It also encourages economic development through business development assistance, direct Federal loans, loan guarantees, and interest subsidies. Federal Indian programs also fund community development activities, such as construction of roads, schools, and irrigation systems. Outlays for the Indian programs whose primary mission is regional development are estimated to be $846 million in 1980 and $861 million in 1981. Additional assistance to Indian tribes is classified in the health, education, natural resources and environment, and general government functions. Regional commission programs.—Regional commissions are designed to secure Federal-State cooperation in addressing interstate and shared substate problems of community and economic development. The commissions serve multiple jurisdictions and agencies through planning, research and development activities. Legislation was submitted in 1979 that would extend the regional commissions nationwide and encourage the use of development grants to resolve multistate, rather than strictly local, problems. Outlays are estimated to increase from $430 million in 1980 to $458 million in 1981. Disaster relief and insurance.—Insurance against losses from such natural disasters as floods, hurricanes, and tornadoes is the responsibility primarily of individuals and businesses. Though State and local governments are responsible for aiding recovery, Federal insurance and disaster relief programs are available to supplement these resources when they are insufficient. Disaster loans.—The Small Business Administration administers a program of loan assistance to victims of physical disasters, including farmers. The Farmers Home Administration in the Department of Agriculture also administers a program that provides emergency loan assistance to farmers. To remedy the difficulties caused by this overlap in responsibility, the administration has proposed to place responsibility for agricultural disaster loans solely in the Farmers Home Administration, which, because of its longstanding experience in dealing with farmers, is better equipped to handle such loans than the Small Business Administration. Farmers Home Administration programs are discussed more fully in the agriculture and commerce and housing credit functions. THE BUDGET FOR FISCAL YEAR 1981 214 CREDIT PROGRAMS—COMMUNITY AND REGIONAL DEVELOPMENT (In millions of dollars) 1979 actual Program Housing and Urban Development programs: Direct loans: New loans Repayments, sales and adjustments ( - ) 319 -264 Net loan outlays Farmers Home Administration programs: Direct loans: New loans 1 Net loan outlays 1981 estimate 274 -122 259 - 8 1 152 178 55 -315 195 —75 435 215 1034 1,387 1,698 56 Loan guarantees: New loans Net loan guarantees Repayments, sales and adjustments ( - ) S estimate -1,029 5 -1,513 -1,782 -126 - 8 4 1,833 1308 2,422 1690 2,701 1782 85 - 2 7 90 - 2 5 95 - 3 0 58 65 65 643 572 900 807 1,620 M94 1,250 -388 775 -446 540 -461 862 329 79 1 —2 2 —1 —2 22 - 1 1 74 - 1 1 95 - 1 4 Net loan outlays 11 63 81 Loan guarantees: New loans Net loan guarantees 1 - 3 41 33 13 _4 131 - 5 185 - 7 185 - 9 125 178 176 2 Loan Newguarantees: loans Net loan guarantees Economic Development Assistance: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans Net loan guarantees Small Business Administration disaster loans: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans Net loan guarantees Other programs: Direct loans: New loans Repayments, sales and adjustments ( - ) Off-budget Federal entity—Rural Telephone Bank: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays 1 Includes sales of direct loans. * Includes guarantees of sales of direct loans. COMMUNITY AND REGIONAL DEVELOPMENT 215 Based upon the Nation's disaster experience during recent years, and assuming that 1981 is an average year, outlays in 1981 are estimated at $200 million. Federal emergency management activities.—The Federal Emergency Management Agency (FEMA) was established in 1979 to bring together, in a single agency, the major Federal programs for civil defense, emergency preparedness, flood insurance, disaster relief assistance and hazard mitigation. The goal of this reorganization is to improve the coordination of Federal responsibilities for civil and natural disasters and to establish a single Federal contact for State and local disaster preparedness agencies. In 1981, FEMA will continue to realign and consolidate its programs. Outlays for disaster relief and assistance and for hazard mitigation are estimated to be $627 million in 1980 and $646 in 1981. FEDERAL OUTLAYS FOR CIVIL PUBLIC WORKS AND CONSTRUCTION 1 (In millions of dollars) Function or Program 1981 estimate 1980 estimate 19/9 actual Federal public works: 1 Community and regional development Water resources projects Other natural resources and environment Energy Transportation Veterans hospitals Health Other functions 204 2,269 669 2,093 302 236 177 426 126 2,410 722 2,383 413 264 171 549 118 2,262 602 3,098 469 371 161 547 Total, Federal public works 6,377 7,039 7,628 Grants to State and local governments: Community and regional development: Community development block grants Local public works Other 3,161 1,741 1,252 3,500 358 1,410 3,805 200 1,581 Subtotal, community and regional development Highways and mass transit Other transportation Pollution control and abatement Other natural resources and environment Other 6,154 8,796 579 3,756 289 222 5,268 9,613 665 3,900 270 216 5,586 10,241 682 3,950 280 218 Total, grants to State and local governments 19,797 19,932 20,957 Total, public works 26,174 26,971 28,585 1 Outlays for the construction and rehabilitation of pftpcal assets, including privately owned assets. Related programs.— Many programs whose primary purpose is to fulfill other national needs also promote community and regional development. For example, Federal outlays for civil public works, shown in the table above, support community development. In 216 THE BUDGET FOR FISCAL YEAR 1981 addition, grants for local health, education, crime prevention, employment training, transportation and general revenue sharing assist State and local development. Other direct Federal activities, such as housing credit, defense contracting, management of public forests and parks, and the operation of Federal faciltities—such as Veterans Administration hospitals, naval shipyards, and NASA research facilities—also significantly affect community development. EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 217 EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES National Needs Statement • Assist State and local governments in providing elementary and secondary education to students of special national concern, particularly the disadvantaged and the handicapped. • Reduce financial barriers that may limit access to higher education. • Promote the development and dissemination of knowledge concerning education and training theory and practice. • Provide work skills needed for jobs. • Provide transitional employment opportunities for the disadvantaged who are unable to obtain regular jobs. • Enhance the quality of the workplace and the stability of labor-management relations. • Assist the disadvantaged and the disabled to be selfsufficient. • Promote the development of, and access to, the arts and humanities. Federal education, training, employment, and social services programs encompass a wide variety of activities that have many differing immediate concerns but share one common goal: to assist all citizens to lead fulfilling and productive lives. The major objective of the programs in this function is to help individuals who require assistance in obtaining education, job skills, labor market information, and supportive services such as child care and counseling. Government expenditures on these programs are considered long-term investments in people, investments whose return will be an improved ability of people to contribute to the Nation's wellbeing by increasing their participation in the labor market and society in general. The allocation of resources among these programs depends heavily on the definition of the Federal Government's primary objective in human capital investment. Federal priorities could be directed toward meeting immediate and pressing needs caused by changes in the economy, such as subsidized public sector jobs in times of recession, or directed more toward meeting future needs, such as support of youth education and training. Both concerns are valid and warrant appropriate action by the Federal Government; they are not mutually exclusive. However, a balance must be achieved so that the resources available are used to best meet the Nation's needs. 218 THE BUDGET FOR FISCAL YEAR 1981 The budget reflects the administration's effort to develop this balance and provide the most effective and efficient mix of programs and services. Concern for both present and future generations has guided the development of this portion of the 1981 budget. This approach builds upon initiatives begun in prior years and supplements them with the administration's new proposals. Since 1977, outlays for programs in this function have increased by almost 50%—from $21.0 billion, to an estimated $30.7 billion in 1980. This trend continues in the 1981 budget, which proposes $34.8 billion in budget authority and $32.0 billion in outlays for education, training, employment, and social services. The major new proposal in this function would provide an increase of $2 billion—$1,2 billion in 1981 and an additional $800 million in 1982—for highly targeted education and employment activities that address the needs of disadvantaged youth. About half of the Nation's unemployed are under age 25 and about onequarter are ages 16 through 19. Developing strategies to overcome the problems associated with youth unemployment continues to be a major administration objective. The employment problems of young people are not general. Very high rates of unemployment and long unemployment spells are highly concentrated among disadvantaged and minority youth, who are in turn heavily clustered in central cities and rural poverty areas. There is evidence that when youth have long spells of unemployment after they finish school, their earnings as adults are likely to be lower. Some of the employment problems of disadvantaged and minority youth are caused by discrimination, the lack of information about job openings from employed relatives and friends, and wage rigidities. Equal employment opportunity efforts, special employment service programs, and the targeted-jobs tax credit are aimed at these obstacles. However, a substantial portion of the problem stems from a lack of the basic skills in language and arithmetic that employers find essential. It is not surprising that experience with current programs indicates that providing needy youth only with subsidized public sector work experience does not improve their prospects. On the other hand, improving a young person's basic skills can improve future earnings. Well-supervised and carefully structured subsidized work experience can play a useful role in supporting this fundamental learning experience. The new proposal builds on past program experience and emphasizes the mastery of basic arithmetic and literacy skills as the key to future job prospects. The program emphasizes the link between EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 2 1 9 the classroom and the workplace to develop marketable skills that can help to improve future employability and earnings. The program depends upon close coordination and joint planning among educators, employment and training officials, and private sector employers to insure that locally developed programs provide those services to youth that impart the basic education and work skills required by local employers. The Departments of Education and Labor will emphasize the use of objective program standards to measure the performance of both program participants and program operators. Other major budget proposals in this area would: • provide for implementation of legislation creating a Department of Education to assure more effective use of Federal resources available to support education activities; • restructure Federal higher education programs to more effectively distribute Federal funds to those most in need of assistance; • reform the Nation's welfare system by establishing a uniform minimum benefit level and increasing job and training opportunities that can lead to permanent employment and reduced welfare dependency; • limit impact aid payments to those local education agencies that are most seriously burdened by Federal activity in their districts; and • support expansion of the Head Start program to improve the social and learning skills of low-income preschool children. EDUCATION This Nation has traditionally valued education as an important prerequisite to the effective functioning of its democratic system of government. In 1981 the Nation will spend approximately $200 billion on education activities. Three-fourths of that amount will come from public sources; approximately one-tenth will come from the Federal Government. The administration proposes $16.5 billion in budget authority for education programs in 1981, $1.1 billion more than was provided in 1980 and an increase of $5.3 billion over 1977. This increase has occurred during a time when school enrollments began to reflect the shift in the age distribution of the population caused by the aging of the post-war baby boom. Total enrollments, which reached a high of over 60 million students in 1975, are expected to decline to 58 million in the fall of 1981. During this period, elementary school enrollments are expected to decline from 34 to 31 million, and secondary enrollments are expected to decline from 16 to 14 THE BUDGET FOR FISCAL YEAR 1981 220 NATIONAL NEED: EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES (Functional code 500; in millions of dollars) Major Missions and Programs BUDGET AUTHORITY Education: Elementaiy, secondary, and vocational education: Aid to education agencies: Elementary and secondary education: Existing law Proposed legislation Indian education Impact aid . Education for the handicapped Vocational and adult education Other Child development Subtotal, elementary, secondary, and vocational education Higher education: Student assistance: Existing law Proposed legislation Higher and continuing education: Existing law Proposed legislation Special institutions Subtotal, higher education Research and general education aids: Educational research and improvement... Unallocated salaries and overhead Cultural activities Other Subtotal, research and general education aids Subtotal, education Training, employment, and labor services: Training and employment: General training and employment programs Public service employment Youth programs: Existing law Proposed legislation Older workers Work incentive program Federal-State employment service Subtotal, training and employment Other labor services Subtotal, training, employment, and labor services 1980 estimate 1979 actual 1981 estimate 1982 estimate 1983 estimate 348 805 1,051 896 486 790 4,094 900 366 519 1,102 933 574 879 4,423 900 366 544 1,193 1,010 618 954 4,759 900 385 558 1,283 1,085 665 1,033 7,655 8,118 9,367 10,008 10,669 4,736 5,222 4,428 545 4,172 1,121 3,964 1,882 449 432 435 22 223 461 23 242 3,671 3,742 334 816 977 782 345 731 175 188 410 20 204 5,360 5,841 5,607 5,972 6,572 492 127 572 143 411 165 661 397 244 695 149 156 441 254 755 160 476 263 814 167 1,334 1,386 1,492 1,610 1,719 14,349 15,345 16,466 17,590 18,960 2,484 5,880 2,998 3,112 3,008 4,598 2,924 4,879 2,745 5,199 2,024 2,101 221 385 745 267 365 764 1,664 1,125 267 385 841 1,822 1,184 267 406 1,880 1,233 267 428 940 11,739 9,606 12,370 12,691 522 586 617 634 653 12,261 10,192 12,505 13,004 13,344 118 EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 221 NATIONAL NEED: EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES—Continued (functional code 500; in millions of dollars) Major Missions and Programs Social services: Grants to States for social and child welfare services: Existing law Proposed legislation Retroactive claims Aid to the elderly Services for the developmental^ disabled and other special groups: Existing taw Proposed legislation Community service programs Domestic volunteer programs Other social services Subtotal, social services Allowance for youth initiative Deductions for offsetting receipts Total, budget authority OUTLAYS Education: Elementary, secondary, and vocational education: Aid to education agencies: Elementary and secondary education: Existing law Proposed legislation Indian education Impact aid Education for the handicapped Vocational, and adult education Other Child development Subtotal, elementary, secondary, and vocational education Higher education: Student assistance: Existing law Proposed legislation Higher and continuing education: Existing law Proposed legislation Special institutions Subtotal, higher education 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 2,744 438 2,710 523 2,675 533 2,675 542 543 543 652 714 777 841 1,103 1,111 554 119 11 551 169 11 1,150 10 550 178 12 1,246 11 612 183 13 1,349 12 661 188 13 5,962 5,676 5,847 6,048 6,281 -8 -7 -5 800 -5 800 -5 3,088 32,565 31,207 34,815 37,438 39,381 3,133 3,409 292 912 589 772 321 668 302 821 789 855 394 760 3,631 50 315 554 968 908 512 822 4,018 850 338 530 1,049 982 562 891 4,358 900 358 542 1,129 1,055 601 964 6,688 7,330 7,761 9,218 9,906 3,769 4,882 4,530 91 3,929 1009 3,842 1,733 388 370 12 221 375 18 239 588 170 4,528 410 182 5,474 196 5,205 5,540 6,207 THE BUDGET FOR FISCAL YEAR 1981 222 NATIONAL NEED: EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES—Continued (Functional code 500; in millions of dollars) Major Missions and Programs 1980 estimate 1979 actual 1981 estimate 1982 estimate 1983 estimate Research and general education aids: Educational research and improvement... Unallocated salaries and overhead Cultural activities Other 432 131 543 127 422 163 629 182 362 202 688 157 401 231 727 158 431 252 785 165 Subtotal, research and general education aids 1,233 1,395 1,408 1,517 1,633 12,449 14,199 14,374 16,275 17,746 2,450 5,041 2,720 3,977 2,835 4,415 2,706 4,703 2,618 5,012 2,048 2,330 208 385 701 238 365 773 1,844 717 263 385 841 1,813 1,065 267 406 889 1,874 1,210 267 428 940 10,833 10,402 11,299 11,849 12,348 488 563 602 621 640 11,321 10,965 11,901 12,470 12,988 3,091 2,670 438 2,627 523 2,675 533 2,675 542 543 557 598 726 777 841 1,016 1,057 594 117 5 569 145 21 1,095 2 •555 175 14 1,227 9 612 181 12 1,330 10 661 183 12 5,923 5,498 5,717 6,026 6,256 760 -5 Subtotal, education Training, employment and labor services: Training and employment: General training and employment programs Public service employment Youth programs: Existing law Proposed legislation Older workers Work incentive program Federal-State employment service Subtotal, training and employment Other labor services Subtotal, training, employment, and labor services Social services: Grants to States for social and child welfare services: Existing law Proposed legislation Retroactive claims Aid to the elderly Services for the developmental^ disabled and other special groups: Existing law Proposed legislation Community service programs Domestic volunteer programs Other social services Subtotal, social services Allowance for youth initiative Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Higher education -8 -7 -5 260 -5 29,685 30,654 31,989 35,027 37,746 90 375 530 670 -215 EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 223 million. Declines in the elementary and secondary school age population are expected to continue into the 1980's. The decline in the traditional college age population that is projected to begin in the early 1980's, may be offset in part by the enrollment of increasing numbers of older and continuing education students. The mission of these programs is to improve the educational opportunities available to the Nation's people. The budget proposes to carry out this mission by providing: • $9.4 billion in budget authority for elementary, secondary, and vocational education programs; • $5.6 billion in budget authority for Federal assistance to support higher education; and • $1.5 billion in budget authority for educational research and information dissemination, and support for other educationrelated activities. In recognition of the growing size and complexity of Federal support for education, the administration proposed the creation of a Department of Education in 1977. Legislation establishing the new Department was enacted late in 1979, and this budget is the first to request funds for it. The new department will permit better coordination and more efficient use of Federal funds to support education activities, and will make a major contribution to more effective use of Federal resources. Elementary, secondary, and vocational education.—Elementary and secondary education is one of the major activities of State and local governments, costing them nearly $100 billion in 1981. Most of the $9.4 billion of budget authority and $7.8 billion in outlays proposed in the 1981 budget for elementary, secondary, and vocational education will assist State and local agencies to improve the education offered to students of special national concern—those from low-income families, the handicapped, Indians, and students with limited English language proficiency. Elementary and secondary education.—The largest share of the funds for elementary and secondary education is channeled to State and local education agencies for supplementary services to low-income, low-achieving students. The Department of Education will play a key role in the new youth education and training initiative. As part of this initiative, legislation will be proposed to establish a grant program to support special supplementary education programs in school districts with high concentrations of poor and unemployed youth. The new program will help needy junior and senior high school students learn the basic academic and employment skills necessary for them to graduate from high school and obtain jobs. Funds will be distribut- 224 THE BUDGET FOR FISCAL YEAR 1981 ed to States and eligible school districts on a formula basis. Schools with concentrations of needy students will compete for the $900 million in budget authority proposed for the first year of the program, most of which will support local activities in the 1981-82 school year. Participating schools will cooperate closely with private industry and with the local agencies administering the complementary new youth training and employment program described below to determine what basic education and work skills are required by local employers and to design projects to develop those skills. Such a joint effort will help assure that disadvantaged students receive the basic skills and work experience needed for a full, productive, and rewarding life. In addition, budget authority of $4.1 billion is requested for existing programs in 1981, most of which will finance supplementary services for elementary school children. The request is $350 million higher than the 1980 level. Budget authority of $192 million, an increase from $166 million in 1980, is requested for bilingual education for 378,000 children with limited English language proficiency. These funds will promote teacher training, curriculum development, and support programs to teach English to children with limited English language skills. Indian education.—Budget authority of $366 million is recommended for 1981 to advance the education of Indians and Alaskan Natives, an increase of $18 million over 1980. The Department of the Interior's Bureau of Indian Affairs operates 223 schools that serve approximately 46,000 elementary and secondary students, and supports tribally controlled Indian community colleges under recently enacted legislation. In addition, the Department of Education will provide grants of $195 per child to 1,200 public school districts serving 356,000 Indian students, and over 12,000 adult Indians will receive assistance in reading and mathematics. Impact aid—This program is intended to compensate local school agencies for the loss of property tax revenue that is the result of the presence of tax-exempt Federal land or federally related activities in their districts. The -administration proposes to limit this assistance in 1981 to those districts most heavily burdened by Federal activity. Payments would be made for children whose parents both live and work on Federal property only if such payments comprised 2.5% or more of a district's budget in 1980. Payments would be made for children whose parents either live or work on Federal property only if such payments comprised 5% or more of a district's budget in 1980. Budget authority of $519 million is requested for these payments in 1981, $286 million less than in 1980. EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 2 2 5 Education for the handicapped.—The budget requests budget authority of $922 million in 1981 for grants to assist State and local education agencies in educating handicapped children, $47.5 million more than the 1980 appropriation. The funds will pay approximately 12% of the extra costs incurred by school districts in meeting the special needs of handicapped children, the same percentage as in 1980. The budget requests a total of $1.1 billion in budget authority to support education of the handicapped. Vocational and adult education.—Budget authority of $933 million is proposed to support vocational and adult education. The request for vocational education, $784 million, is the same as the 1980 appropriation. However, general support for vocational education would be reduced by $33 million to $529 million to permit greater support for research and demonstration in the field. The request for adult education programs is $122 million, $22 million above the appropriation for 1980. Other aid to education agencies.—Budget authority of $574 million is requested for other assistance to education agencies. The request includes $284 million to assist in the desegregation of school districts, an increase of $24 million over 1980, and $20 million to support greater educational equity for women, twice the level provided in 1980. Child development—The Head Start program provides services for low-income preschool children and funds for research and demonstration projects. This effort relies heavily on the participation of parents in program control and operation to achieve program goals. Recent evaluations suggest that Head Start projects improve the social and learning skills of children as they mature. For 1981, budget authority of $825 million is requested, an increase of $90 million over 1980, which will allow the program to serve 386,000 children, 19,000 more than in 1980. The level of funding for Head Start in the 1981 budget is 74% above the level in the 1977 budget. Budget authority of $10 million is requested for increased services to migrant children, and an additional $20 million of budget authority is requested for services for low-income minority families living in inner cities. An additional $5 million for special efforts to improve grantee management capabilities and upgrade staff skills is requested. Higher education.—Higher education and its related activities will cost the Nation approximately $70 billion in 1981. The budget proposes $5.6 billion in budget authority and $5.2 billion in outlays to support activities in this subfunction in 1981. The request is based on the reauthorization proposal that the administration has submitted to the Congress. 226 THE BUDGET FOR FISCAL YEAR 1981 Student assistance.—Federal student financial assistance helps qualified students enter and complete schooling beyond the twelfth grade. This assistance, in the form of grants, loans, and loan guarantees has expanded from budget authority of $250 million in 1965 to nearly $5 billion in 1981. For 1981, the administration has, as part of its reauthorization proposal, requested essential reforms in the student assistance programs. The most important reform is a complete overhaul of the current guaranteed student loan and national direct student loan programs. Under the existing guarantee program, loans from private lenders have not been uniformly available, and some students in need of loans have been unable to obtain them. Moreover, the cost of the interest subsidies for guaranteed loans has grown dramatically. The total interest paid on a guaranteed loan is tied to the rate of Federal borrowing, which is estimated at 14.6% in 1980. The Government pays all interest until one year after a student leaves school, and all but 7% of the interest thereafter. The existing direct loan program, which is administered by colleges and universities, has failed to fill the gaps in the guarantee program. Availability of direct loans varies greatly from school to school and the loan default rate currently exceeds 17%. The administration proposes to replace these two existing loan programs with a basic direct loan and a supplemental loan guarantee program. Basic loans would be loans from the Federal Government to students based on need. The amount of a loan would be limited to the cost of a student's education adjusted for other awards and grants, a contribution from the student, and family assistance. Supplemental loans would be federally guaranteed loans to parents and students from private lenders. The amount of a supplemental loan would be limited to the cost of a student's education not covered by basic loans and other sources. Interest subsidies would be lower than under the current guarantee program. These programs will focus loan resources on students with demonstrated financial need and thus permit the more effective use of available resources. The 1981 budget requests $1.6 billion for the new loan program to provide 1.25 million basic loans averaging $720, and 1.35 million supplemental loan guarantees averaging $1,600. The administration's reauthorization proposal also provides for continuation of the basic educational opportunity grant program. The budget proposes a maximum grant of $1,900 for 1981, an increase of $100 over 1980. Budget authority of $2.4 billion is requested for this purpose. The 1981 budget also recommends $370 million in budget authority for the supplemental educational opportunity grants provided by higher education institutions as a supplement to basic grants, EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 227 and $77 million for the State student incentive grant program. This would maintain both programs at their 1980 levels. An estimated 573,000 students will receive supplemental grants and 282,000 students will receive incentive grants. The budget requests budget authority of $550 million for the work-study program, the same amount as in 1980. The administration proposes that higher education institutions be encouraged to provide work-study assignments that involve the tutoring of elementary and secondary school students, the dissemination of student financial aid information, and the provision of special services to handicapped students. Higher and continuing education.—In addition to student assistance programs, the budget proposes $430 million in 1981 budget authority for assistance to higher education institutions. Most of these funds support programs to help disadvantaged students to obtain postsecondary education. Although postsecondary enrollment of minorities and women has improved dramatically in the last decade, problems persist in some occupations. The budget proposes $13 million in budget authority for the graduate professional education opportunities program to increase the number of minorities and women entering these occupations. This represents an increase of 47% over 1980, and will fund 850 new fellowships. Budget authority of $160 million is proposed for special higher education programs for the disadvantaged, an increase of $12 million above 1980. These programs identify and help prepare potential college students at the high school level, and assure that placement, career counseling, and other services are provided once they enter college. The budget proposes budget authority of $140 million, an increase of $30 million over 1980, for the developing institutions program. In addition, a new matching program would be established to encourage developing institutions to increase the support they receive from non-Federal sources, including State governments, and $20 million of the $30 million increase would be reserved for this purpose. The budget also proposes $23 million in budget authority for cooperative education programs, which allow schools and employers to provide students with work experience and education on a cooperative basis and $30 million for foreign area and language studies programs. Special institutions.— Budget authority of $204 million is recommended for the American Printing House for the Blind, Gallaudet College, the National Technical Institute for the Deaf, and Howard University, an increase of $16 million over the 1980 appropriation. 228 THE BUDGET FOR FISCAL YEAR 1981 CREDIT PROGRAMS—EDUCATION (In millions of dollars) 1980 estimate 1979 actual Student assistance programs: Direct loans: New Loans Repayments, sales and adjustments 1981 estimate 417 -62 573 -73 1,053 -477 355 500 576 2,760 1,477 3,960 2,557 2,160 483 283 -89 78 -168 103 -107 Net loan outlays 194 -13 -4 Loan guarantees: New loans Net loan guarantees 530 509 670 648 -237 Net loan outlays Loan guarantees: New Loans Net loan guarantees Other education: Direct loans: New loans Repayments, sales and adjustments ( - ) , Research and general education aids.—The budget requests $1.5 billion in budget authority for education research and development, other general education and cultural activities, and program administration. Budget authority of $264 million is requested to support libraries and other learning resources in 1981, $9 million above the 1980 level. This includes $70 million for support of public libraries and $171 million for school libraries. Budget authority of $88 million is proposed for research and development, compared to $77 million in 1980. Research will focus on improving equality of educational opportunities and general teaching methods. In addition, budget authority of $40 million is requested for the basic skills improvement program to improve the teaching of reading, writing, and mathematics, an increase of $5 million over 1980. Budget authority of $168 million for the National Endowment for the Arts, and $164 million for the National Endowment for the Humanities is requested for 1981 to increase Federal support for individual and institutional endeavors. Budget authority of $12.9 million is proposed for the I ititute for Museum Services to provide general operating and special project support for the Nation's museums. The budget also includes $182 million in budget authority for the Corporation for Public Broadcasting for 1983, provided 2 years in advance. Federal support for the Arts Endowment, Humanities Endowment, Institute for Museum Services, and the Corporation for Public Broadcasting is partially matched by contributions from non-Federal sources. Budget authority of $164 million is requested for the Smithsonian Institution in 1981. EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 229 Tax expenditures.—The major tax expenditures that aid higher education are the personal income tax exemptions available to parents of children 19 and over who are in school, the deductibility of contributions to educational institutions, and the exclusion of scholarships and fellowships from income subject to tax. The revenue losses associated with these provisions in 1981 are estimated to be $1.0 billion, $1.2 billion, and $0.4 billion respectively. In addition, the Revenue Act of 1978 permits employers to establish educational assistance plans for the benefit of their employees. Payments under the plan, which may be used to pay for most educational programs, are not included in the employee's income. Deductions for educational assistance plans are estimated to result in a tax expenditure of $35 million in 1981. Related programs.—A number of Federal programs are related to education, although their primary purpose is to meet other national needs and to serve other major missions. For example, veterans readjustments benefits provide assistance to eligible veterans attending school, and the health programs of the Federal Government support a substantial amount of biomedical education. Comprehensive Employment and Training Act (CETA) training activities are frequently conducted through State and local education agencies, and some CETA public service employment participants are employed in education agencies. CETA also provides special grants to be used by, or with the cooperation of, education agencies, to increase coordination between education and training and employment programs. The accompanying table shows major education-related programs that support other missions. TRAINING, EMPLOYMENT, AND OTHER LABOR SERVICES Programs that carry out the training and employment mission are designed to increase employment opportunities, mainly for the disadvantaged, and to increase their long-term employment and earnings. These programs attempt to correct deficiencies in labor markets by developing work skills, providing temporary employment and work experience, and improving the matching of workers and jobs. Other labor services include the regulation of employeremployee relations and the publication of labor statistics. The budget proposes $11.9 billion in outlays for these activities in 1981. Training and employment—Funding for training and employment activities has grown steadily over the years, including large temporary increases in 1977 and 1978 as part of the administration's economic stimulus program. With improvement in the economy, employment has increased by 9.4 million jobs since December 1976, the second largest 3-year increase in employment since World 230 THE BUDGET FOR FISCAL YEAR 1981 FEDERAL OUTLAYS FOR EDUCATION AND RELATED PURPOSES (In millions of dollars) Level and program 19S1 estimate 1980 estimate 1979 actual 14,349 15,345 16,466 Related outlays supporting other major missions: Elementary and secondary: Child nutrition Student grants, Social Security Administration. U.S. Forest Service, Agriculture Military personnel Veterans readjustment Other 3,014 361 120 376 284 1,242 3,465 419 141 391 241 1,358 3,225 480 160 459 244 1,491 Subtotal, elementary and secondary 5,397 6,015 6,059 2,120 1,385 672 23 1,757 1,565 728 12 1,535 1,752 720 8 143 171 168 92 150 95 158 94 174 4,585 4,486 4,451 262 109 137 204 250 90 157 215 264 21 175 229 Higher education: Veterans readjustment benefits Student grants, Social Security Administration. Defense service academies and ROTC Health professions training Research training, National Institutes of Health Alcohol, Drug, and Mental Health Administration Other Subtotal, higher education Adult and continuing education: Agriculture Extension Service Veterans readjustment benefits Student grants, Social Security Administration. Other 712 712 689 Training of Federal military employees: Defense and Coast Guard 523 555 576 Other. Comprehensive Employment and Training A c t International development assistance Other 806 37 4 677 38 14 878 44 12 847 729 934 Subtotal, adult and continuing education Subtotal, other Total related outlays 12,064 12,497 12,709 Total outlays 26,413 27,842 29,175 > See national needs table at the beginning of this section. War II. Starting in 1980, funding for training and employment programs is being directed increasingly toward the disadvantaged and the long-term unemployed, with continuing improvements expected in program management. The administration is proposing new legislation to improve the targeting and content of programs addressing the special problems of youth. EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES Outlays for Training and Employment Activities 1 Total P*btk Swict E*ptor»*«t Aertrtrtw Service Years for Training and Employment Activities Million* Fitcol Y«9» 1 Total Public Svfviu Eapbyiwnt AcfhrfH** Millions ttHmoH 231 THE BUDGET FOR FISCAL YEAR 1981 232 An evaluation started after the enactment of the Comprehensive Employment and Training Act (CETA) in 1973 will soon produce preliminary data that will allow a comparison of the employment and earnings of federally supported training program participants before and after the training with the employment and earnings of similar people not in the programs. This will allow more accurate calculations of the benefits of various programs to participants. The accompanying tables and charts provide information on trends in the level of training and employment services, on the distribution of services by type of service provided, and on the characteristics of participants in training and employment programs. They include all programs that are functionally classified as training and employment services, as well as programs with similar objectives in other subfunctions. Outlays for these other programs are shown in the table at the end of this section DISTRIBUTION OF TRAINING AND EMPLOYMENT SERVICES BY TYPE OF SERVICE {In percent) Outlays Service 1979 Public service employment Work experience On-the-job training Institutional training Vocational rehabilitation Labor market services, and other 1980 35 22 3 19 7 13 Years of service 1979 1981 28 24 4 21 8 14 29 19 4 21 8 19 1980 14 34 3 16 31 2 1981 12 36 3 16 30 3 12 31 3 17 31 6 CHARACTERISTICS OF THE UNEMPLOYED, THE POOR, AND TRAINING AND EMPLOYMENT PROGRAM PARTICIPANTS1 Unemployed workers 1975 Average number (millions) Percent:3 Age 21 or less Female Less than high school education... Low income Public assistance recipients Minority 1977 Poverty population * 1979 Program participants 1975 1977 1979 1975 1977 1979 8.0 6.9 6.2 16.1 17.0 16.9 2.4 3.5 3.8 35 44 49 •21 n.a. 19 35 48 43 4 22 n.a. 22 39 49 45 <22 n.a 23 26 62 67 100 n.a. 30 26 63 65 100 n.a. 30 26 63 64 100 n.a. 30 29 58 38 71 42 40 33 48 38 65 23 36 39 52 45 73 33 40 ' Unemployed and poor reported on a calendar year basis; program participants reported on a fiscal year basis. • Data collected in March of year shown here; represents income of prior year. Source: Bureau of the Census data from the Current Population Survey. »Program participant figures exclude summer employment programs for youth. 4 Represents individuals living in poverty areas, n.a. = Not available. General training and employment programs.—Most training and employment programs are operated by State and local governments through grants under the Comprehensive Employment and Training Act (CETA). Legislation enacted in 1978, taking effect in EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 233 1979 and 1980, provided new authority that increased the emphasis on permanent private sector jobs and assistance to the disadvantaged and the long-term unemployed. The law also introduced new requirements to improve program management. Outlays for general training and employment programs are expected to total $2.8 billion in 1981, almost $100 million more than in 1980. The budget would continue general purpose grants (under CETA title II—ABC) to maintain 1980 service levels, providing an average of up to 400,000 years of service in 1981. The services provided include classroom and on-the-job training, work experience, and retraining for individuals who can move to jobs requiring greater skill or who lose their current jobs. The ultimate success of structural employment and training programs can best be measured by long-term improvements in employment and earnings. Since most jobs are in the private sector, the administration moved in 1978 to redirect Federal employment and training programs toward private sector jobs. The 1978 amendments to CETA included the administration's proposed new private sector opportunities initiative, and the Revenue Act of 1978 created a new targeted jobs tax credit primarily for poor unemployed youth, as requested by the administration. Both place increased emphasis on assisting disadvantaged persons, including youth, to secure private sector jobs. Under the new private sector program, funds are provided through States and localities to improve the quality and quantity of private sector job placements. Uses of the funds include job development, training, placement, implementation of the targeted employment tax credit, and other services, such as on-the-job training, designed jointly with Private Industry Councils. Legislation is proposed to continue authority for this initiative through 1982. The Federal Government also finances training and employment services outside of the State and local prime sponsor system for migrant and seasonal farmworkers whose mobility makes them difficult to serve, and for Indian tribes and groups, primarily because of their special Federal relationship. In addition, other services for groups such as displaced homemakers and older workers, research, other program support, and administration are funded separately. Public service employment—Two public service employment (PSE) programs under CETA provide temporary, federally subsidized employment for low-income, unemployed persons in public or nonprofit agencies, principally through grants to State and local governments. Outlays for PSE are estimated to be $4.4 billion in 1981. 234 THE BUDGET FOR FISCAL YEAR 1981 The public service employment program under CETA title II-D will provide about 250,000 jobs for low-income, long-term unemployed persons. The program requires substantial investments in training for participants who are thus better prepared for placement in permanent jobs after PSE. Outlays for title II-D are expected to be $2.4 billion in 1981. The PSE program in title VI of CETA provides jobs for persons with up to 40% higher incomes and with shorter periods of unemployment than those in the program under title II-D. The 1980 appropriations provided by the Congress will reduce the number of jobs at the end of the year to a level of about 200,000. The budget proposes maintaining title VI at the 200,000 jobs level in 1981, with outlays of $2 billion. Youth programs—As part of the major initiative to help youth with the greatest need acquire basic work skills, the administration is proposing a redirection and enhancement of youth programs. Part of this program has been described in the preceding pages under elementary and secondary education. In training and employment, three programs started as part of the 1977 economic stimulus effort would be replaced. Two of them—the youth employment and training programs and the youth community conservation and improvement projects—would be combined and expanded under the proposal. A third, the purely experimental youth incentive entitlement pilot projects, is being phased out and lessons learned from it incorporated in the new initiative. Budget authority in 1981 would be $1,125 million, $300 million above the current services level of the programs to be replaced. Prime sponsors receiving grants under the new program would work closely with local school systems to provide the combination of training in basic skills and work experience that fits the need of each individual participant. Youngsters in schools receiving the new education aids could be helped to get jobs, preferably in the private sector. Schoolage dropouts could get subsidized jobs only if they participated in a training program designed to give them basic skills. The older (18- through 21-year-old) out-of-school disadvantaged youth who cannot find and keep jobs are by far the worst-off group, since those who have serious post-school employment problems are most likely to be condemned to a lifetime of low and sporadic earnings. Prime sponsors would devote their greatest effort to them, concentrating on providing opportunities to learn basic skills, gain work discipline, develop specific skill training, and obtain private sector employment. Prime sponsors would design their programs in close cooperation with local industry to insure the job relevance of program activities and to increase the number of youth in the program who can get private sector jobs. Prime EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 235 sponsors would work with local employers to develop objective job performance standards for program participants. Use of these standards would foster better program management and enable participants to develop credible training and work records that would be acceptable to future employers, paving the way for employment in the private sector. Continued expansion of the Job Corps training program to 44,000 service years for youth, double the 1977 level, is proposed. Under the budget request, the summer youth employment program in 1981 would be maintained at the 1 million part-time jobs financed in 1979 and proposed for 1980. The planning and administration of this program would be closely integrated with the new youth program, easing the application and reporting burdens of prime sponsors. The Young Adult Conservation Corps, which provides work experience on public lands for youth from families in all income ranges, would be continued at the 1980 service level. The private sector program and the new targeted employment tax credit will provide additional resources aimed at increasing the employment of youth in the private sector. The accompanying chart covers these youth programs as well as other major related youth training and employment programs. Youth Training and Employment Programs Fiscal Y«ar* Ertimatt 236 THE BUDGET FOR FISCAL YEAR 1981 Older workers.—Funding is requested for the community service employment program for older Americans to continue to provide 52,500 job opportunties for low-income persons aged 55 and over with outlays of $263 million in 1981. Work incentive (WIN) program— This program helps persons receiving aid to families with dependent children (AFDC) find and retain jobs by providing training, work experience, subsidized jobs, intensive employment services, child care, and other supportive services. Private employers are encouraged to hire recipients through the WIN tax credit. WIN outlays for 1981 are estimated to be $385 million, a $20 million increase over 1980. An estimated 286,000 WIN participants will be hired in unsubsidized jobs. Welfare reform employment program.—In 1979 the administration proposed a carefully designed set of essential reforms of welfare programs. Under this proposal, reforms in the level and delivery of cash assistance would be integrated closely with an employment and training strategy, the new employment tax credit, and revisions in the earned income tax credit (These proposals are also discussed in the income security function.) The proposal would ensure that individuals receiving public assistance have strong incentives to seek and retain permanent unsubsidized employment, and would provide work and training for principal earners in eligible families. The budget request assumes enactment of welfare reform in time for the substantial planning effort for training and employment services to begin in 1981. The new program will build on the existing CETA, work incentive, and tax credit authorities. Provision has been made in the contingency allowance for initial resource needs in 1981 and additional funding in subsequent years. To help prepare for implementation and to continue to learn more about how training and employment strategies affect welfare recipients and local labor markets, the budget requests $281 million in budget authority under general training and employment programs for continuation of large-scale research and demonstration projects begun in late 1979. Federal-State employment service.—Job-matching services for workers and employers are provided free of charge by 2,400 State offices financed with Federal funds. The budget request maintains employment service operations at the 1980 level. An assessment of the results of computerized job-matching and redesign of automated procedures, begun in 1980, will continue in 1981. Other labor services.—The Federal Government establishes and enforces standards affecting the relationship between employer and employees and between unions and their members. Th6se activities include enforcement of the minimum wage and related laws, regu EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 237 lation of welfare and pension plans, supervision of labor-mangement relations, a new program of grants for labor-mangement committees, and regulation of the equal employment practices of Federal contractors. In addition, labor statistics and information on employment, unemployment, wages, prices, and productivity are collected and disseminated. Outlays for these services are estimated at $602 million in 1981. (Enforcement efforts for job safety and health are included in the health function, while those relating to job discrimination on the basis of race, age, or sex are covered in the administration of justice function.) Tax expenditures.—The tax code provides incentives for employers to hire disadvantaged individuals and those receiving certain welfare benefits. Tax credits are also provided to encourage individuals with dependents to work by allowing tax credits for child care expenses. The targeted employment credit was enacted in the Revenue Act of 1978. It encourages employers to hire disadvantaged youth ages 18 to 25, as well as Vietnam veterans, recipients of general assistance or supplementary security income, participants in cooperative education programs, certain ex-offenders, and handicapped individuals undergoing vocational rehabilitiation. The credit, equal to 50% of the first year and 25% of the second year wages, applies to the first $6,000 of each eligible employee's wages. It replaces the general, untargeted employment tax credit that was in effect in 1977 and 1978. The new credit is estimated to result in a tax expenditure of $0.3 billion in 1981. The employment credit, for hiring employees under the WIN program or other AFDC recipients, was revised to make it similar to the targeted employment credit. This credit is estimated to result in a tax expenditure of $60 million in 1981. Employment is also encouraged by a credit of 20% of child care expenses incurred to allow people with dependent children to work. The maximum credit is $200 for one child and $400 for 2 or more children. The revenue loss resulting from the child care credit is estimated to be $0.9 billion in 1981. Training and employment-related programs.—A number of Federal programs are related to training and employment efforts, although their primary purpose is to meet other national needs and serve other missions. The following table shows major training and employment-related programs that support other major missions. The table does not include programs that are primarily economic development activities. THE BUDGET FOR FISCAL YEAR 1981 238 TRAINING AND EMPLOYMENT OUTLAYS FOR OTHER MAJOR MISSIONS (In millions of dollars) Functional code 350 450 450 500 500 600 700 750 750 999 Agriculture Housing and Urban Development Interior Education Health and Human Services Health and Human Services Veterans Administration Equal Employment Opportunity Commission Justice Various agencies Total 1980 estimate 1979 actual Agency 1981 estimate 63 20 55 1,223 1,047 142 629 55 23 52 1,656 671 151 542 61 26 47 2,296 282 151 460 93 2 202 120 2 206 135 3 206 3,475 3,478 3,666 SOCIAL SERVICES The Federal Government provides grants to States for a variety of social services, primarily for the poor and other groups with special needs. Grants to States for social and child welfare services.—Under title XX of the Social Security Act, grants are made to States for services to individuals and families to promote their independence and self-support and to reduce institutionalization where appropriate. States provide a broad array of services including family planning, preparation and delivery of meals, transportation, counseling, child care, and services to meet the special needs of the lowincome, aged, handicapped, mentally retarded, alcoholics, and drug addicts. State and local government training of personnel for the social service field is also provided under title XX. Legislation has been proposed to increase the limits on Federal payments under title XX to a total of $2.9 billion, beginning in 1980. This proposal would make permanent the $200 million increase in the regular ceiling enacted for 1979. The $200 million special child day care set aside enacted for 1979 would be extended through 1981. Specific appropriation authority is also requested for the territories of Guam, Puerto Rico, the Virgin Islands, and the Northern Mariana Islands. In addition, legislation is proposed to phase in a ceiling on State and local government training expenses at 4% of each State's allotment under title XX of the Social Security Act, the principal source of Federal social services funding. Special efforts will be made to improve the management and operations of the rapidly growing State and local training program. Child welfare grants are made to the States for the care and protection of neglected, homeless, and abused children. The admin- EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 239 istration has proposed legislation to significantly improve the scope and quality of services provided to children by the States, and to develop stronger procedural safeguards for the rights of children and their parents. This proposal is designed to: • aid in reuniting children with their natural families whenever feasible; require more frequent monitoring of the status of children in foster care to assure that they are adopted or returned to their families as rapidly as possible; • encourage the adoption of children who might otherwise remain in foster care for an extended period; and • subsidize low-income families who want to adopt children. Under these proposals, outlays for child welfare services are estimated to rise from $57 million in 1979 to $119 million in 1980, and $164 million in 1981. Aid to the elderly.—Budget authority of $714 million is requested for programs serving older persons in 1981. These programs are intended to prevent or delay institutionalization by enabling older persons to continue living in their homes and communities. Particular emphasis will be placed on serving those elderly who have the greatest economic and social need. Budget authority requested for nutrition projects is increased from $320 million in 1980 to $350 million in 1981, which will finance 410,000 daily meals for older Americans. In addition, an increase of $33 million in budget authority, for a total of $280 million, is requested for other services to the elderly in 1981. This increase will aid in providing services for the elderly in all parts of every State, finance the development of at least one long-term care ombudsman program in each State, and help provide legal services for the elderly. Special efforts will also be made to meet the special needs of, and improve the delivery of services to, low-income, minority, rural, and disabled elderly. Services for the developmentally disabled and other special groups. —Outlays for rehabilitation and related services to the developmentally disabled are estimated to be $63 million in 1981. The administration supports legislation to provide grants of up to 3 years duration for service projects, demonstrations, and research on the problems of domestic violence. Budget authority of $10 million is requested for this activity in 1981. Funds previously appropriated will be used for a White House Conference on Families and a White House Conference on Aging to be held in 1981, and for a White House Conference on Children and Youth to be held in 1982. Additional budget authority of $3 million is requested in 1981 for the White House Conference on Aging to complete its activities. Funds are requested to explore ways to 240 THE BUDGET FOR FISCAL YEAR 1981 provide services to meet the needs of special groups such as young runaways and Native Americans. To aid States and localities in improving their adoption and foster care systems, budget authority of $164 million is requested for 1981. Budget authority of $964 million is requested for rehabilitation services and handicapped research in 1981, an increase of $33 million over the 1980 appropriation. These resources aid the approximately 1.8 million persons who have physical and mental disabilities and help them to become self-sufficient. Additional funds to rehabilitate recipients of the supplemental security income program and beneficiaries of the old-age survivors and disability insurance programs are classified in the income security function. In 1981, an increased number of experimental programs helping the disabled live independently will be undertaken and carefully evaluated. Increased budget authority is also requested for the National Institute for Handicapped Research in order to provide for a comprehensive and coordinated research plan to benefit handicapped individuals and to improve the distribution of information to the professional community. Community services program.—Several social services activities are sponsored by the Community Services Administration's (CSA) community services program. The program also provides administrative support for about 900 local community action agencies. Budget authority of $550 million is requested for CSA programs, which will be directed toward: • improving grantee performance levels by establishing a competitive grant program for community action agencies; • conducting demonstration projects in areas such as family counseling, group homes, migrants, and rural housing; and • increasing funding for successful community development corporations and enabling corporations to become administratively self-sufficient. Domestic volunteer programs—ACTION, the Federal Government's agency for volunteer programs, supports Volunteers in Service to America (VISTA) and the Foster Grandparent, Senior Companion, and Retired Senior Volunteer programs. ACTION will continue to emphasize planning and programming based on meeting the needs of the poor. The budget proposes an increase of about 600 in the number of VISTA volunteers. In 1981, the VISTA program will reorder its priorities to place more emphasis on energy conservation, community development, and programs targeted to rural areas. All three older American volunteer programs would enroll more volunteers than in 1980. The major increase would be for an additional 1,000 senior companions providing long-term care to the elderly. EDUCATION, TRAINING, EMPLOYMENT, AND SOCIAL SERVICES 241 The budget also requests increases for technical assistance grants and demonstration projects to explore alternative approaches to voluntary action in the private sector. Emphasis in these demonstrations will be placed on carrying out the goals of the administration's urban initiatives by concentrating projects in distressed urban areas. Outlays for ACTION'S domestic programs are estimated to increase from $117 million in 1979 to $145 million in 1980 and $175 million in 1981. Tax expenditures.—The provision of social services by a wide variety of private institutions is encouraged by the tax deductibility of contributions to those institutions. The tax expenditure for charitable contributions, other than to educational and health institutions, is expected to be $7.1 billion in 1981. 310-000 0 - 80 - 17 242 THE BUDGET FOR FISCAL YEAR 1981 HEALTH National Needs Statement: • Improve access to quality medical care and mental health services. • Provide better insurance protection including coverage for catastrophic expenses. • Restrain inflation in health care costs. • Improve State and local health care systems. • Acquire knowledge regarding the causes, prevention, and treatment of diseases and promote preventive measures by which good health can be maintained. • Support education of students in the health professions, especially in primary care fields and placement of health workers in medically underserved areas. • Improve consumer and workplace health and safety. Federal involvement in promoting the Nation's health began with the establishment of the Public Health Service in 1798 to protect the Nation from contagious diseases brought into the country by seamen. The rapid growth in Federal support for the Nation's health care systems began in the mid-1960's when medicare and medicaid were established. Between 1966 and 1979, Federal health expenditures (including health-related programs classified in other functions) rose from $7.4 billion, 13% of national health expenditures, to $68 billion, 28% of national health expenditures. Increased Federal involvement has dramatically improved the health care system, particularly by increasing access to medical care for the poor. Since the enactment of medicaid, for example, the poor have substantially increased their use of health services. In 1964 the poor made 7% fewer physician visits than the non-poor, whereas by 1976 they made 17% more physician visits. Federal assistance has also helped to eliminate the shortage of hospital beds and of health professionals in the United States. Despite the accomplishments of this expanded Federal investment, significant problems of financing and access remain. Improved services to the poor and underserved, better health insurance, and health care cost containment are major national needs for the 1980's. Poor persons not covered by medicaid use medical care services at rates 22% lower than the rest of the population. Over 15 million Americans still lack health insurance. Nineteen million lack adequate coverage, and 46 million lack protection against catastrophic expenses. Although many advances have been HEALTH 243 made, improvements in the planning and management of health care are still needed, particularly for the poor and underserved. Restraining inflation of health care costs is also a major national need. Excessive inflation in these costs hinders the ability of people to pay for needed health care, strains the national economy, and burdens the Federal budget. Health care expenditures in the United States have grown from 4.5% of gross national product (GNP) in 1955 to 9.1% of GNP in 1978. During the last 10 years, hospital costs—the largest component of health care costs—have grown almost 2lA times as fast as the consumer price index. Without hospital cost containment legislation or other major changes in the health system, national health expenditures are projected to reach 10.5% of GNP in 1985. Many of our Nation's health problems can be prevented, and studies indicate that future improvements in our health are more likely to come from greater attention to disease and injury prevention than to their treatment.1 Health research on the causes, prevention, and treatment of disease, and the promotion of preventive measures are critical components of the administration's health strategy for the 1980's. Federal actions focus on areas that are likely to improve health status, and reflect efforts to better link research and its practical application. Since 1960, the Federal Government has spent about $18 billion to help increase the supply of health professionals, which has risen by 50%. The record of the last two decades is impressive in both the level of Federal support and the response of the Nation's health professions schools. As a result, there is and will continue to be an adequate—or excessive—supply in most of the major health professions. The Federal Government has begun to shift resources toward correcting geographic maldistribution and overspecialization of health professions. Since Federal support for health professions training has achieved its initial goal, Federal resources are being reallocated to address these new challenges. To address these national health needs, the budget includes estimated outlays of $62.4 billion in 1981. The budget includes costsaving proposals that would reduce outlays by $1.7 billion in 1981 and $3.6 billion in 1983. The budget provides major support for the following initiatives: • A national health plan, effective in 1983, with a net increase of $24.1 billion in Federal costs 2 and an increase of $9.6 billion in mandated private sector expenditures. This plan would ensure that 155 million working Americans and their families have adequate private insurance protection. Public 1 Healthy People: Surgeon General's Report on Health Promotion and Disease Prevention (August 1979). * Included in the allowance for contingencies beginning in 1983. This proposal is discussed in greater detail in the Special Analyses volume of the budget documents. 244 THE BUDGET FOR FISCAL YEAR 1981 programs would cover current medicare and medicaid recipients and an additional 20 million poor and near-poor persons. Benefits would include catastrophic coverage and prenatal and infant care services for the entire population. The program would be financed and administered through a combination of mandated coverage by employers and a Federal-State health care program. The 1983 allowance reflects the impact of the national health plan on both outlays and receipts. • Improved access to health services especially for the poor and underserved. Health financing proposals would expand medicaid eligibility to more than 2 million additional low-income children, youth, and expectant mothers. Proposed expansions of health services programs include new community health centers, new mental health service programs, and more National Health Service Corps professionals in medically-underserved areas. • Increased efforts to control inflationary growth in health care costs. The budget presents policies to deal with excessive costs by reducing the overall rate of health care cost inflation— particularly through hospital cost containment legislation— and by making the Federal Government a more prudent and cost-conscious purchaser of services, • Administrative reforms of health planning requirements and services grants to improve the management of health programs. These reforms will use demonstration projects as a vehicle for working with State and local entities. • Expanded efforts throughout the Federal Government to promote health and longevity and to prevent disease, illness, and injury. Increased budget authority is recommended for health research and for health promotion and disease prevention programs. The Federal Government will support programs to reduce smoking, drug, and alcohol abuse. These and other proposals are discussed in detail in the following sections on health care services, health research, education and training of the health care work force, and consumer and occupational health and safety. Health care services.—The largest amount of Federal spending for national health needs is devoted to the mission of financing and providing health care services. Federal outlays for health care services classified in this mission are expected to rise from $51.6 billion in 1980 to $57.3 billion in 1981 and $73.9 billion in 1983, even with proposed savings legislation. Total Federal outlays for health care services, including activities in other missions of the budget, are estimated at $70 billion in 1981, of which 32% supports HEALTH 245 NATIONAL NEED: HEALTH {Functional code 550; in millions of dollars) Major missions and programs BUDGET AUTHORITY Health care services: Medicare.Existing law Proposed legislation Medicaid: Existing law Proposed legislation Other health care services 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 31,762 35,922 45,007 -17 53,682 -235 61,381 -101 13,217 3,793 14,578 34 4,105 16,194 298 4,485 18,418 549 4,889 20,879 676 5,374 48,772 54,640 65,968 77,303 88,209 3,006 3,220 3,371 3,625 3,909 214 164 235 195 266 202 285 186 305 202 3,383 3,651 3,838 4,096 4,415 184 518 222 410 211 339 230 363 247 391 115 114 112 112 120 Subtotal, education and training of the health care work force 817 747 662 706 759 Consumer and occupational health and safety: Consumer safety Occupational safety and health 635 311 663 340 708 377 701 386 719 403 946 1,002 1,086 1,087 1,122 -10 -8 -8 -8 -8 Subtotal, health care services Health research: National Institutes of Health research Alcohol, Drug Abuse, and Mental Health Administration research Other research programs Subtotal, health research Education and training of the health care work force: National Institutes of Health training Health Resources Administration training.... Alcohol, Drug Abuse, and Mental Health Administration training Subtotal, consumer and occupational health and safety Deductions for offsetting receipts Total, budget authority 53,908 60,033 71,546 83,184 94,497 services to the poor and 58% supports services to the aged, including low-income aged. Medicare and medicaid.—Medicare and medicaid outlays, which finance health care services for poor, disabled, and aged Americans, are estimated to be $53.2 billion in 1981. Medicaid outlays of $15.9 billion will finance care of 23 million poor Americans. Medicare outlays of $37.3 billion will provide services to 25 million aged and 3 million disabled Americans. These totals include a number of benefit improvements and reforms to restrain health costs. THE BUDGET FOR FISCAL YEAR 1981 246 NATIONAL NEED: HEALTH—Continued (Functional code 550; in millions of dollars) Major missions and programs OUTLAYS Health care services: Medicare: Existing law Proposed legislation Medicaid: Existing law Proposed legislation Other health care services 1980 estimate 1979 actual 1981 estimate 1982 estimate 1983 estimate 29,147 33,540 1 38,425 -1,076 44,279 -1,927 50,825 -2,692 12,491 3,483 14,220 34 3,802 15,575 298 4,095 17,833 549 4,472 20,222 676 4,863 45,121 51,598 57,317 65,205 73,893 2,698 2,969 3,137 3,388 3,658 190 135 200 170 239 179 284 185 303 177 3,023 3,338 3,555 3,858 4,138 Education and training of the health care work force: National Institutes of Health training Health Resources Administration training Alcohol, Drug Abuse, and Mental Health Administration training 171 307 190 348 198 265 229 342 247 433 105 114 96 117 119 Subtotal, education and training of the health care work force 583 652 559 689 799 Consumer and occupational health and safety: Consumer safety Occupational safety and health 603 293 645 337 658 369 684 374 701 391 896 982 1,027 1,058 1,092 -10 -8 -8 -8 —8 Subtotal, health care services Health research: National institutes of Health Alcohol, Drug Abuse, and Mental Health Administration research programs Other research programs Subtotal, health research Subtotal, consumer and occupational health and safety Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays Health care services 49,614 56,563 62,449 70,801 79,914 17 110 134 163 46 Benefit improvements.—Legislative proposals to expand medicare and medicaid services include the following: • Child health assurance program (CHAP% Passage of the CHAP legislation would make an additional 2 million children and pregnant women eligible for medicaid, and improve services to currently eligible children. • Comprehensive clinic services. The administration will propose legislation that would require States to reimburse community HEALTH 247 TOTAL FEDERAL HEALTH SERVICE OUTLAYS BY INCOME AND AGE GROUPS (In millions of dollars) 1979 actual 1980 estimate 1981 -estimate Poor persons: Aged ( 6 5 and over) Other adults ( 1 9 to 64) Children and youth ( 0 to 18) 6,318 9,052 2,955 7,236 10,245 3,323 7,984 11,106 3,602 Subtotal, poor 18,325 20,804 22,692 Non-poor persons: Aged (65 and over) Other adults ( 1 9 to 64) Children and youth (0 to 18) 25,621 10,130 1,956 29,306 11,396 2,140 32,619 12,617 2,402 37,707 42,842 47,639 31,939 19,183 4,911 36,543 21,641 5,463 40,604 23,723 6,004 56,032 63,646 70,331 (45,121) (10,911) (51,595) (12,051) (57,317) (13,014) Subtotal, non-poor Total, all recipients: Aged (65 and over) Other adults (19 to 64) Children and youth ( 0 to 18) Total, all recipients Allocated to health (function 550) Allocated to other national needs • • • • health centers and other clinics not affiliated with hospitals for services provided to medicaid patients. Disability. The administration will continue to seek the liberalization of medicare and medicaid coverage for disabled beneficiaries. Home health. In an effort to encourage alternatives to nursing home placement, the administration proposes to eliminate the 3-<lay prior hospitalization requirement for home health services under medicare hospital insurance. An expansion of home health services under medicaid is also proposed to avoid placement of persons in an institution. Outpatient psychiatric services. The administration continues to support liberalizing medicare mental health benefits by reducing the beneficiary co-payment to the same level as for other medical services, and by raising the total amount that will be reimbursed by the program. Medigap legislation. Most medicare beneficiaries purchase medical insurance to supplement medicare coverage. The administration is proposing legislation to protect beneficiaries from overpriced, inadequate policies and deceptive sales practices. It would set up a voluntary program of certification for policies that supplement medicare and penalize insurers for misrepresentation of policies. 248 THE BUDGET FOR FISCAL YEAR 1981 • Medicare enrollment in health maintenance organizations (HMOs). Medicare costs in prepaid group practice are less than those in fee-for-service practice, and the difference between payments for these two kinds of medical practices represents savings to the Federal Government. The administration supports legislation that would share the Federal savings with medicare beneficiaries who enroll in HMOs, in the form of reduced cost sharing or additional preventive services. OUTLAY IMPACT OF PROPOSED MEDICARE AND MEDICAID EXPANSIONS (In millions of dollars) 1981 1982 1983 Medicaid: Child health assurance program (CHAP) Comprehensive clinic services Disability initiative Other expansions,.... 403 52 4 35 650 57 15 51 860 61 28 53 Total, medicaid expansions 494 773 1,002 43 7 18 5 2 89 12 31 25 2 128 13 37 35 2 75 159 215 Medicare: Disability initiative Home health Outpatient psychiatric services HMO enrollment Other expansions Total, medicare expansions Restraining health care costs.—The most important action recommended to control health costs is passage of hospital cost containment legislation. The Congress failed to enact this essential piece of legislation proposed by the administration last year. Had hospital cost containment been enacted, Federal outlays would be approximately $1.3 billion lower in 1980 and 1981 than will now be the case. Enactment of hospital cost containment, effective October 1, 1980, would save the Federal Government an estimated $0.8 billion in 1981 and $4.8 billion from 1981 to 1983. The Nation as a whole would save $2.0 billion in 1981 and $11.9 billion from 1981 to 1983. Legislation has also been proposed to place a national limit on capital investment in health care facilities. As an additional component of its cost containment strategy, the administration is requesting $10 million in 1981 budget authority for a new grant program to facilitate closure and conversion of unnecessary health facilities. Other activities proposed in the budget to help control costs include continued support for State and local health planning agencies. Budget authority of $171 million is requested for this HEALTH 249 Savings From Hospital Cost Containment 1981 1982 1983 Fltcol Y«on activity in 1981. Health maintenance organizations have proven effective in reducing health costs, and the budget proposes $69 million in 1981 budget authority, $7 million over the 1980 level, for 343 federally supported HMOs. Professional standards review organizations (PSROs), which were established to monitor unnecessary use of health services, are supported at a level of $195 million in 1981 obligations, up $51 million from 1980. Legislation is proposed to strengthen the Federal authority to establish PSRO and utilization review performance standards. The 1981 budget also supports a number of other initiatives to insure that the Federal Government purchases services in the most cost-effective way. Total 1981 savings from these efforts are estimated at approximately $935 million of which about two-thirds requires legislation, while the remainder will be achieved through administrative changes in allowable reimbursements for hospitals and hospital-based physicians. In addition to these proposals, the administration places a high priority on obtaining authority for competitive award of contracts for administering the medicare program. 250 THE BUDGET FOR FISCAL YEAR 1981 HEALTH CARE COST CONTROL OUTLAYS (In millions of dollars) 1982 estimate 1981 estimate Programs to control health care costs: Health planning Health maintenance organizations Closure and conversion of facilities Professional standards review organizations Total, programs to control health care costs Legislative savings proposals: Hospital cost containment Medicare as a supplement for the working aged.. Eliminate medicare nursing bonus Common audit for medicare and medicaid Hospital reimbursement for long-term care Financial penalty to deter abuse Social Security wage information to determine eligibility Competitive bid purchasing for equipment and services Other Subtotal, legislative savings Administrative savings proposals: Hospital reimbursement reform Reduced reimbursement for hospital-based physicians Other Subtotal, administrative savings Total, savings proposals 1983 estimate 167 39 2 143 170 50 4 154 170 56 5 165 351 378 396 -780 -170 -191 —32 -20 -23 -1,620 -260 -245 -32 -30 -23 -2,390 -295 —305 -32 -35 -23 -14 -15 -17 -12 -55 -18 -75 -24 —80 -1,297 -2,318 -3,201 -279 -309 —335 -18 -123 -44 -13 —49 -2 -418 -356 -386 -1,715 -2,674 -3,587 Health planning and services grants reform.—The Department of Health and Human Services will undertake administrative reform of the Federal health planning and services system. The current health planning and services system requires 11 separate State plans, and includes 30 distinct grant programs. This fragmentation has contributed to gaps in service delivery, burdensome application requirements, and poor coordination of planning and management. New procedures will provide the basic framework for an integrated Federal/State/local system for budgeting and managing health services programs. Grants will be made to State and local governments to demonstrate effective ways to coordinate primary care programs for the underserved. These grants will require performance agreements to assure delivery of primary health services to the poor and estab- HEALTH 251 lishment of standards for the cost of various services and for health measures such as immunization and reduced mortality rates. Consolidation among the disparate planning requirements will improve the coordination of planning and decisionmaking. Both the planning and grant reforms will be phased in on a voluntary basis with State and local governments. Other health care services.—Budget authority for health care programs other than medicare and medicaid is proposed to increase from $4.1 billion in 1980 to $4.5 billion in 1981. HEALTH CARE SERVICES (In millions of dollars) Budget authority Program 1981 estimate 1980 estimate 1979 actual 31,762 13,217 35,922 14,612 44,990 16,492 318 80 348 89 380 98 398 437 478 Health Services: Community health centers Maternal and child health Family planning National Health Service Corps Public Health Service hospitals Indian health service Other health services 259 378 135 63 172 569 165 320 377 165 83 173 623 231 374 392 177 134 165 679 227 Subtotal, health services 1,741 1,972 2,148 297 337 152 282 606 296 351 167 256 627 326 356 171 255 758 Total, budget authority 48,772 54,640 65,968 (Total, outlays) (45,121) (51,598) (57,317) Medicare Medicaid Mental Health: Mental health services Saint Elizabeths Hospital Subtotal, mental health Prevention Alcohol and drug abuse Health planning Public Health Service management Federal employees health benefits The administration has proposed the Mental Health Systems Act to restructure Federal support to States and communities for the development and delivery of comprehensive mental health services. This proposal reflects the recommendations of the President's Commission on Mental Health. To support this new initiative, a 1980 supplemental appropriation of $50 million in budget authority and $368 million in 1981 budget authority are requested. Total budget authority for State and community mental health services is proposed to increase from $348 million in 1980 to $380 million in 1981. Support to communities for mental health services in 1980 and 252 THE BUDGET FOR FISCAL YEAR 1981 1981 is expected to include about 40 new projects to initiate community-based services, 60 new comprehensive community mental health projects, 200 new projects to provide mental health services in general health care settings, and support for about 550 of the nearly 800 established community mental health centers. These centers will provide services to an estimated 3.6 million people in 1981. Through cooperative agreements with States, comprehensive support systems serving about one million chronically mentally ill persons will be improved. Budget authority of $98 million in 1981 is requested to subsidize the delivery of mental health care at St Elizabeths Hospital, which serves primarily District of Columbia residents. Legislation will be submitted to establish a public corporation—accountable to the Secretary of the Department of Health and Human Services and the Mayor of the District of Columbia—to manage the hospital. The 1981 budget proposes to expand health services funding for high-priority underserved areas through the community health centers program and the National Health Service Corps (NHSC). A proposed $54 million increase in 1981 budget authority above the 1980 level of $320 million would support 886 community health centers serving over 5 million people. Budget authority for the NHSC services program is proposed to rise from $83 million in 1980 to $134 million in 1981. This will provide an increase of 1,708 NHSC professionals to a 1981 level of 4,528. Budget authority of $679 million in 1981, an increase of $56 million from 1980, is requested to provide direct medical services or contract care to 750,000 American Indians and Alaskan Natives living on or near Federal reservations. Fifteen new facilities are scheduled to open in 1981. Federal funding for Indian health services has doubled since 1976, and increased fivefold since 1970. The 1981 budget reflects the administration's commitment to effective and innovative disease prevention, health promotion,, and health education programs. As a sequel to successful efforts in 1978 and 1979 to provide childhood immunizations to 90% of all children under age 15, a new initiative in 1981 will focus on eliminating measles. The 1981 budget also proposes a $10 million program for community water and rural school fluoridation, which is one of the most effective measures known for prevention of tooth decay. The 1981 budget continues the expanded smoking and health program, including a $10 million community-based demonstration grant program designed to discourage smoking and alcohol abuse among youth. Support will continue in 1981 for the national public information program targeted at women and teenage smokers. A new $10 million formula grant program for States will be initiated in 1980 to support preventive health services addressing the five leading causes of disease and death in each State. 253 HEALTH Tax expenditures.—Federal tax laws help finance health care by allowing employees to exclude from their taxable income the insurance premiums paid by their employers. The revenue loss from this tax expenditure is estimated at $15.2 billion for 1981. Furthermore, individuals are permitted to itemize certain deductions for health care expenses and health insurance premiums. In 1981, the revenue loss from this tax expenditure is estimated at $4.1 billion. In addition, tax reductions for health-related charitable contributions are estimated at $1.6 billion in 1981. The national health plan includes proposals to expand the earned income tax credit and to increase the percentage of income above which medical expenses can be deducted. Health research.—The budget proposes to increase budget authority for health research from $3.7 billion in 1980 to $3.8 billion in 1981. Outlays are estimated to increase from $3.3 billion in 1980 to $3.6 billion in 1981. Health research at the National Institutes of Health (NIH) is the largest component of these activities. Budget authority is proposed to rise from $3.2 billion in 1980 to $3.4 billion in 1981. The request provides for support of 5,000 grants for new and continued research projects to increase the base of knowledge in health research, and will support a total of approximately 16,700 research project grants FEDERAL OUTLAYS FOR HEALTH RESEARCH {In millions of dollars) 1979 actual Cancer Environmental health Cardiovascular disease Neurological and visual disease Metabolic diseases Infectious diseases Mental health Child health Health services research and development.. Population and family planning Pulmonary diseases Nutrition Dental health...... Research resources Rehabilitation research and development General medical sciences Health statistics activities Regulatory research and development Other research and development Total Allocated to health (function 550) Allocated to other national needs 1980 estimate 1981 estimate 840 341 280 274 242 237 232 49 72 86 79 99 69 43 269 12 219 49 40 395 869 399 288 339 296 263 286 58 110 91 81 116 71 57 263 16 243 53 37 409 908 449 298 368 310 282 295 65 114 95 86 130 72 68 248 18 292 50 37 449 3,929 4,345 4,635 (3,023) (906) (3,338) (1,007) (3,555) (1,080) 254 THE BUDGET FOR FISCAL YEAR 1981 in 1981. This strategy reflects the adminstration's commitment to a stable funding base for NIH basic research activities. Approximately 50% of the budget authority requested for NIH is for research project grants. In addition to NIH research funding, budget authority for research in mental health, alcohol, and drug abuse is proposed to increase from $235 million in 1980 to $266 million in 1981, an increase of nearly 55% over the 1977 level. The 1981 budget will expand basic and applied research in areas such as neurotransmitters and brain biochemistry, mental health treatment assessment, and biomedical factors in drug and alcohol abuse. Budget authority of $202 million is requested for other research such as health services, health care financing, health statistics, and health care technology. Federal outlays for health research, including outlays not in this function, are expected to increase from $4.3 billion in 1980 to $4.6 billion in 1981. The Federal Government provides approximately two-thirds of the total funds devoted to health research. Education and training of the health care work force.—The Federal Government currently provides funding for nearly every health profession through one or more of about 60 separate programs. Projections indicate, however, that there is, and will continue to be, an adequate and perhaps excess supply of personnel in all the major health professions. For example, the Nation's supply of active physicians is expected to reach nearly 600,000 by 1990, an increase of 58% between 1975 and 1990. Moreover, student aid in the Department of Education has expanded rapidly, reducing the need for special programs for health professions training. In recognition of these trends, the 1979 and 1980 budgets phased down general institutional support. They concentrated on alleviating the problems of geographic maldistribution through service commitment scholarships, and of overspecialization of medical practice through support of primary care training programs. This policy focus is continued in the 1981 budget. Total budget authority for training health professions in this mission is proposed to decline from $747 million in 1980 to $662 million in 1981. SUPPLY OF ACTIVE HEALTH PROFESSIONALS (Calendar years) 1940 actual Physicians Dentists Optometrists Pharmacists Podiatrists Veterinarians 188,800 75,800 10,500 82,600 6,000 11,100 1950 actual 219,900 79,200 14,800 89,200 6,400 13,700 1970 actual 323,200 102,200 18,400 109,600 7,100 25,900 1975 actual 378,600 112,000 19,900 122,500 7,300 31,100 1980 estimate 1990 estimate 444,000 126,200 22,000 144,300 8,700 37,500 594,000 154,500 26,700 185,400 12,500 54,900 Source: "A Report to the President and Congress on the Status of Health Professions Personnel in the United States." (HEW, 1978.) HEALTH 255 Budget authority for National Health Service Corps scholarships, as distinguished from the services program, is proposed to increase to $96 million in 1981 to support an estimated 6,700 scholarships in 1981. Scholarship recipients agree to serve in health manpower shortage areas. While the NHSC scholarship program will remain the primary Federal mechanism for alleviating shortages in specific medically underserved areas, it is intended that the long-range need for NHSC assignees will be met increasingly by volunteers. Those obligated to service because of scholarships will serve only in areas where physicians are least likely to locate voluntarily. In addition to the NHSC scholarship program, the 1981 budget continues support for other training programs, including those for nurse practitioners and physician assistants, and primary care and family medicine residencies. Special emphasis will be given to programs to strengthen minority health professions schools, expand assistance for disadvantaged students, and enhance the recruitment and retention of minorities and women into health professions careers. Service commitments to underserved areas and understaffed facilities are also proposed for all federally supported students in mental health professions. Loan guarantees will continue to be available under the health education assistance loan program for students seeking financial assistance without a service commitment. It is estimated that new loan guarantees will total $40 million for the 1980-81 academic year. Consumer and occupational health and safety.—Budget authority of $1.1 billion in 1981 is requested for the Federal mission of protecting consumers from unsafe and defective products, and workers from occupational hazards. For consumer safety activities, budget authority is proposed to increase from $663 million in 1980 to $708 million in 1981. Funding will support research, dissemination of information, regulatory measures to protect consumers from unreasonable consumer product risks, and a laboratory facility for the Food and Drug Administration. The safety and efficacy of drugs and medical devices, the safety of foods, and reform of existing drug laws are also priorities of this administration. The budget includes $377 million in budget authority to improve occupational safety and health in 1981. Research initiatives will be undertaken in 1981 to assess industrial safety technologies and begin the first national mining occupational health survey. Research on the exposure of miners to hazardous substances in metal and nonmetal mines will continue, and funding is requested for a new occupational safety and health research laboratory. The Occupational Safety and Health Administration and the Mine Safety and Health Administration in the Department of THE BUDGET FOR FISCAL YEAR 1981 256 Labor will continue to issue standards to eliminate working conditions that cause injuries, illness, or death. Increased technical support for developing and enforcing standards, including a new laboratory for the Mine Safety and Health Administration, is proposed. Inspections are expected to increase from 268,000 in 1979 to 306,000 in 1981. The Occupational Safety and Health Administration will increase grants to help private organizations train workers and employers to recognize and eliminate hazards. CREDIT PROGRAMS—HEALTH (In millions of dollars) 1979 actual Direct loans: New loans Repayments, sales and adjustments ( - ) * 1980 estimate 1981 estimate 75 -26 136 -118 163 -144 Net loan outlays 49 18 19 Loan guarantees: New loans Net loan guarantees2 48 5 217 181 268 229 1 2 Includes sales of direct loans. Includes guarantees of sales of direct loans. Health-related programs.—The Federal Government supports a number of health-related programs that are a part of other major functions. These programs meet other national needs, such as national defense, but are related to the health of the Nation's people. The following table shows 1981 outlays for these health-related programs. 257 HEALTH PROPOSED 1981 FEDERAL HEALTH AND HEALTH-RELATED OUTLAYS (In millions of dollars) Mission Agency Health and Human Services Veterans Defense Agency contributions to employee health funds Labor Agriculture Energy Interior Environmental Protection Agency State National Science Foundation Transportation National Aeronautics and Space Administration justice Housing and Urban Development Other agencies Total Allocated to health (550) Allocated to other national needs 1 Health care services Health research 56,717 6,048 4,486 2,589 3,667 144 177 45 145 228 Training the health care work force 736 374 326 332 1 158 13 349 411 11 61 11 43 6 38 31 84 5 83 5 49 Protecting consumers and workers Total '61,443 6,568 5,147 2,589 363 601 239 99 84 90 83 77 61 44 45 445 43 31 271 48 29 33 11 1 14 97 70,331 4,635 1,495 1,522 1 (77,976) (559) (936) (1,027) (495) 1 (62,449) (15,527) 33 (57,317) (113,014) (3,555) (1,080) Includes offsetting receipts of — U million not allocated ty mission. Highlights of recent and proposed initiatives in these and other health-related activities are discussed in the special analysis presentation, "Improving the Nation's Health." 310-000 0 - 80 - 18 258 THE BUDGET FOR FISCAL YEAR 1981 INCOME SECURITY National Needs Statement • Mitigate the loss of income people experience as a result of unemployment, retirement, disability, or death. • Insure a reasonable income and adequate diet for all poor Americans, especially families with children, the elderly, and disabled who—even though they may be working—cannot provide for themselves. •Help the poor meet problems arising from increasing energy costs. • Promote decent and affordable housing for low-income individuals and families. • Eliminate duplication and inequities in these programs and assure that they focus on those most in need. • Administer these programs efficiently while preserving the dignity and independence of the beneficiaries. • Aid the poor to work their way out of poverty, rather than fostering permanent dependence. Income security is the largest and one of the most steadily growing functions in the Federal budget. In 1981 income security will comprise over 35% of total budget outlays, while 25 years earlier it was 14% of the total. In the last quarter of a century, Federal social insurance protection has been extended to virtually all Americans who are aged, poor, disabled, or unemployed. Growing income security outlays reflect the extension of this protection. Over that period total Federal budget outlays as a percentage of gross national product (GNP) grew by 5.2 percentage points: from 17.1% in 1956 to 22.3% in 1981. The income security portion of that total more than tripled—growing from 2.4% in 1956 to 8.0% in 1981. As the table below shows, this growth is dominated by the social security and unemployment programs. Over this period social security (the old-age, survivors, and disability insurance trust funds) grew at a rate roughly four times as fast as GNP, Unemployment assistance outlays, which vary with the unemployment rate, have fluctuated widely both in absolute amounts and as a percent of GNP. Other income security outlays have risen at a rate roughly three times as fast as GNP. INCOME SECURITY 259 INCOME SECURITY OUTLAYS AS A PERCENT OF GROSS NATIONAL PRODUCT 1956 actual Social security Unemployment assistance All other Total 1961 actual 1966 actual 1971 actual 1976 actual 1981 estimate 1.3 .4 .7 2.4 .9 .9 2.8 .3 .9 3.5 .6 1.4 4.5 1.2 2.2 5.0 .7 2.3 2.4 4.2 4.0 5.4 7.9 8.0 While outlays in the income security function go mainly to needy individuals and families—the elderly, the disabled, the unemployed, and low-income families—the great bulk of such spending is not needs- or income-tested. In 1981, about 16% of the total function—equal to about 1.3% of GNP—will be needs tested, while most of the remainder is for payments such as retirement, disability insurance, and unemployment benefits. Increases in the cost of income security programs come largely from an increase in the number of people receiving benefits, from legislated automatic cost-of-living increases, and from the higher initial benefits received by new beneficiaries of the social security system as a result of their work history. Most of the benefits are automatically available to those who meet qualification standards established in law. Therefore, outlays for these programs can be changed in a major way only through new legislation. The 1981 budget proposals continue the President's policy to reform income security programs so that they better meet national needs and can be administered as efficiently and inexpensively as possible. Administration proposals and initiatives in the income security area include: • simplifying programs to ease access for beneficiaries and to increase administrative efficiency; • reducing fraud and abuse, to promote public confidence and to insure that benefits reach intended beneficiaries; • offsetting the effect of rising energy costs on low-income families; • reforming the welfare system by establishing a national basic minimum level of assistance to families, increasing work opportunities and incentives for poor families, and providing fiscal relief to the States; and • improving the short-term financing of the social security system. A number of commissions and study groups have been appointed by the President to study social security and other retirement systems, including Federal employee, private, and State and local 260 THE BUDGET FOR FISCAL YEAR 1981 government systems, and to recommend changes in these systems to guarantee their long-term soundness. Legislation is proposed to allow borrowing between social security trust funds. This will increase the ability of the system to respond to economic fluctuations without affecting the long-term soundness of the system. Rising energy costs place particularly large burdens on lowincome families. The administration is proposing a two-part effort to meet those problems. The first is a special cash energy allowance for those who receive supplemental security income. The second is energy crisis assistance grants to States for aid to lowincome families. In the food stamp program, fraud and error will be reduced by creating fiscal incentives for States to improve administration. Specifically, legislation is pending to require States with excessive error rates in administering food stamp benefits to share in the cost of such errors. A substantial increase in funding is proposed for the special supplemental food program for women, infants, and children (WIC) so that 300,000 more individuals can receive benefits. The budget assumes enactment of proposed legislation to reduce child nutrition subsidies for meals for children from middleand upper-income families so that Federal resources may be better targeted on the neediest. Sound financing is a major concern for the railroad retirement system and will require increased taxes coupled with a modest restructuring of future benefits. These steps will correct anomalies in the system and bring it more in line with social security benefits. The administration is proposing legislation to meet these problems. All Federal retirement programs in this function and some public assistance benefits are related by law to changes in the cost of living, as measured by the consumer price index (CPI) or some other index. In this way, benefits are protected from erosion by inflation. Two consumer price indexes are published by the Bureau of Labor Statistics: the original index, which was designed to measure the purchasing power of the dollar for urban wage earners and clerical workers, and a new index, which covers all urban households. The new index covers about 80% of the population, double that of the original index. The administration has proposed legislation to shift to the more comprehensive all-urban index in measuring automatic cost-of-living increases for Federal programs linked to the CPI. General retirement and disability insurance— The greatest portion of income security outlays is dedicated to retirement and disability insurance programs. Except for special benefits to dis- INCOME SECURITY 261 abled coal miners, the beneficiaries themselves have been taxed during their working years to support the programs. Outlays for general retirement and disability insurance are estimated to increase from $125 billion in 1980 to $144 billion in 1981 because of: • an automatic increase in benefits to keep pace with the cost of living; • an increase in the number of aged and disabled persons eligible for benefits; and • growth in earnings upon which the benefits are based. Social security.—The largest single program in the budget is the old-age, survivors and disability insurance program. In 1981, this program is expected to pay benefits of $135 billion to 19.8 million retired workers, 2.9 million disabled workers and their 13.2 million dependents and survivors. More than 100 million workers and their employers are expected to pay $130 billion in payroll taxes during 1981 to cover these costs. The program offers basic protection against loss of earnings due to retirement, death or disability for 90% of the Nation's workers. Since social security payments began 40 years ago, changes in the rate of economic growth, the participation of single and married women in the labor force, and the birth rate have profoundly affected the program. They have affected the level of benefits, the amount of taxes that could be anticipated, and the way taxes and benefits are distributed. Recently, a number of commissions and study groups were appointed by the President and the Congress to examine and recommend ways that social security, and, in some cases, related social insurance and income assistance programs, should be adapted to reflect our understanding of future economic needs. The study groups are expected to report in 1980 and 1981. No major policy changes will be proposed in the social security program until these reports are available. Experience with economic conditions has shown the need for more flexibility for financing the system in the short-term to permit it to respond to temporary economic changes. Legislation will be proposed to permit borrowing among the old-age and survivors insurance trust fund, the disability insurance trust fund and the health insurance trust fund. Under present law, reserves in one of these funds cannot be used to finance operations in another. Without such legislation, by 1983 there would be inadequate amounts in the old-age and survivors insurance trust fund and large balances in the disability and health insurance trust funds. Last year, a number of changes were proposed by the administration to modify the social security disability insurance program. These changes would remove existing disincentives for beneficia- 262 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: PROVIDING INCOME SECURITY (Functional code 600; in millions of dollars) Major missions and programs BUDGET AUTHORITY General retirement and disability insurance: Social security (OASDI): Existing law Proposed legislation Railroad retirement: Existing law Proposed legislation Special benefits for disabled coal miners Other Subtotal Federal employee retirement and disability: Retirement and disability Federal employees workers' compensation... Subtotal Unemployment compensation Public assistance and other income supplements: Supplemental security income: Existing law Proposed legislation AFDC and other: Existing law Proposed legislation Earned income tax credit Food stamps WIC food supplements: Existing law Proposed legislation School lunch and other nutrition programs: Existing law Proposed legislation Housing assistance Refugee assistance: Existing law Proposed legislation Low-income energy assistance: Existing law Proposed legislation Other: Existing law Proposed legislation Subtotal Deductions for offsetting receipts Total, budget authority 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 100,612 115,465 130,923 196 150,272 260 169,428 375 4,201 4,440 1,820 13 1,925 12 4,769 274 1,961 11 5,134 285 1,836 12 5,405 289 1,903 14 106,646 121,842 138,133 157,799 177,414 20,472 228 24,007 279 26,101 381 27,783 388 29,315 423 20,700 24,286 26,481 28,171 29,738 15,516 16,940 19,351 23,044 23,845 5,505 6,371 6,903 17 7,416 11 8,462 14 6,688 773 6,670 7,395 —79 1,696 8,735 7,798 -249 1,570 9,730 7,999 -181 1,454 10,594 8,134 -164 1,345 11,021 570 758 925 46 976 70 1,026 75 3,326 4,103 24,780 27,725 4,483 -458 33,488 4,908 -497 40,758 5,334 -533 41,716 235 524 87 511 79 495 72 409 189 1,597 2,400 2,400 2,400 284 232 4 216 18 226 3 235 49,020 59,062 67,487 76,712 79,545 ~2 -2 -2 -2 -2 191,880 222,127 251,451 285,725 310,540 INCOME SECURITY 263 NATIONAL NEED: PROVIDING INCOME SECURITY—Continued (Functional code 500; in millions of dollars) Mapr m a * ! programs OUTLAYS General retirement and disability insurance: Social security (QASDI): Existing law Proposed legislation Railroad retirement: Existing law Proposed legislation Special benefits for disabled coal miners Other Subtotal Federal employee retirement and disability: Retirement and disability: Existing law . Proposed legislation federal employees workers' compensation... Subtotal Unemployment compensation Public assistance and other income supplements: Supplemental security income: Existing law Proposed legislation AFDC and other: Existing law Proposed legislation Earned income tax credit Food stamps W1C food supplements: Existing law Proposed legislation School lunch and other nutrition programs: Existing law Proposed legislation Housing assistance Refugee assistance: Existing law Proposed legislation Low-income energy assistance: Existing law Proposed legislation Other: Existing law Proposed legislation Subtotal Deductions for offsetting receipts Total, outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 102,595 117,927 -14 137,020 -99 154,623 -328 172,682 -650 4,279 4,748 1,610 8 1,968 12 5,227 -70 1,994 12 5,269 -102 1,835 12 5,967 -136 1,900 13 108,492 124,641 144,084 161,308 179,776 12,192 14,305 187 252 16,686 22 381 18,957 23 388 21,238 24 423 12,379 14,556 17,089 19,368 21,685 10,742 15,610 18,752 17,445 15,645 5,471 6,374 6,908 17 7,421 11 8,466 14 6,611 773 6,822 7,127 -79 1,696 8,678 7,681 -249 1,570 9,656 7,999 —181 1,454 10,524 8,136 -164 1,345 10,949 542 735 860 43 909 65 950 70 3,423 3,955 4,367 5,318 4,240 -432 6,606 4,736 -478 7,984 5,143 -513 9,401 141 419 228 296 97 425 72 425 186 1,660 2,400 2,400 2,400 252 259 214 22 221 229 28,586 36,143 40,060 43,591 —2 160,198 190,948 4 -2 —2 219,982 241,710 46,923 -2 264,028 264 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: PROVIDING INCOME SECURITY—Continued (Functional code 600; in millions of dollars) Major missions and programs ADDENDUM Off-budget Federal entity: Pension Benefit Guaranty Corporation: Outlays MEMORANDUM Attribution of Federal Financing Bank outlays: Housing assistance 1979 actual - 3 8 1980 estimate 1981 estimate 1982 estimate - 3 7 - 4 4 - 4 2 1,557 - 5 0 2,946 1983 estimate - 4 2 512 ries to return to gainful employment, strengthen administration of the program, and reduce costs. Depending on the resolution of differences between House and Senate versions, a disability reform bill could be enacted early in 1980. It would place new limits on the maximum amount a disabled beneficiary and family might receive in combined benefits, strengthen supervisory and technical review capacity of the Social Security Administration over the adjudicatory services, and provide better protection for disabled beneficiaries seeking to return to active employment. Other legislation is being proposed, primarily of a technical nature, to facilitate the routine operation of the program and to mitigate obvious inequities. Most of these measures would have little or no effect on benefits costs. Items with budgetary signifiance include proposals to: • permit retroactive benefits for surviving spouses who were unable to file a claim for widow(er)s benefits within the month in which the insured spouse died, provided the claim was filed in the immediate next month; • continue offsetting worker's compensation benefits against social security benefits even after the social security beneficiary has converted from the disability insurance rolls to the old-age rolls at age 62; and • begin to offset worker's compensation benefits when the social security beneficiary begins to receive both benefits rather than when the Secretary of Health and Human Services receives notice of receipt of worker's compensation. Railroad retirement.—The Railroad Retirement Board, a Federal agency, administers benefits equivalent to social security as well as industry pensions for retired and disabled railroad employees, their dependents, and survivors. The industry pensions include an array of retirement, survivpr, and disability benefits beyond those provided by social security. Benefit outlays are estimated to increase INCOME SECURITY 265 from $4.7 billion in 1980 to $5.2 billion in 1981 as a result of increased benefits. Higher benefits paid to the 1 million beneficiaries will more than offset the effect of an anticipated 2% decline of 21,000 beneficiaries between 1980 and 1981. The Board's latest actuarial projections suggest that the industry pension fund is underfunded. Its cash balances are being rapidly depleted and would be inadequate by 1984. The budget reflects proposed legislation to ensure that the interests of current and future beneficiaries are protected by restoring the railroad industry pension fund to solvency. The proposals would increase pension revenues by 2% of railroad industry payroll chiefly by removing the ceiling on earnings subject to railroad retirement taxes. The proposal would also restrain the future growth in benefits, making them more like social security benefits. The administration invites railroad labor and management jointly to propose sound long-term financing of the industry pension fund without added Federal subsidies. The industry component of the railroad retirement system provides windfall benefits to certain beneficiaries entitled to both social security and railroad retirement benefits. The general taxpayer has subsidized these benefits to railroad industry beneficiaries since 1976. The windfall subsidy, estimated in 1974 to require 25 level, annual $250 million appropriations, was re-estimated in 1976 and in 1979. The estimated cost of the windfall subsidy doubled in 5 years, and further increases are expected because the current Railroad Retirement Board estimates assume no price increases after 1980. The administration is again requesting an increase in the annual windfall appropriation from $313 million in 1980 to $350 million in 1981. At the same time, legislation is proposed to limit future Federal liability for this growing subsidy to $350 million annually for the remaining 20 appropriations. Legislation is also proposed to simplify benefit computations, improve service to beneficiaries, and simplify administration. Special benefits for coal miners.—Benefits are provided to coal miners disabled from pneumoconiosis (commonly known as "black lung") and their dependents and survivors. These benefits, which are adjusted automatically in relation to changes in the GS-2 Federal salary levels, are estimated to total $2.0 billion annually in 1980 and 1981. The Department of Health and Human Services (HHS) administers $1 billion in benefits funded from general revenues that are paid to disabled coal miners and their dependents and survivors who filed for benefits between 1970 and 1973. In the HHS-administered component, an increase in average benefit levels will be offset by a decline in the number of beneficiaries from 440,000 in 1979 to 416,000 in 1980 and 391,000 in 1981. 266 THE BUDGET FOR FISCAL YEAR 1981 The Department of Labor receives black lung claims filed after 1973, and benefits are to be paid by the mine operator found responsible for the disability. In addition, the Black Lung Benefits Reform Act of 1977 provided for review by the Department of Labor of all claims denied by the Department of Health, Education, and Welfare for possible approval under new eligibility criteria. Benefit payments for eligible miners and survivors where no mine operator can be assigned responsibility, or where mine employment terminated before 1970, are paid from the black lung disability trust fund. This trust fund is financed by an excise tax on coal. Benefit payments are estimated at $829 million in 1980 and $772 million in 1981. Other.—The President's Commission on Pension Policy, established to develop recommendations to the President on efficient and equitable retirement systems for American workers, is examining several subjects, including what constitutes an adequate standard of living upon retirement and the ability of the various retirement systems to meet the needs of the retired population. In addition, data are being collected on the financial condition of the various systems and their ability to provide promised benefits; on the cost of these benefits now and in coming decades; and on tax policy, capital formation and economic growth as they relate to pension policy. Pension Benefit Guaranty Corporation.—The Pension Benefit Guaranty Corporation, an off-budget Federal entity, was established by the Employee Retirement Income Security Act of 1974 to protect the vested benefits of workers, in covered pension plans that terminate. Employers with covered plans pay an annual premium of $2.60 per participant to cover the Corporation's costs of taking over terminated pension plans and paying benefits when due. Employers whose plans terminate are liable for the unfunded portion of vested retirement benefits to the extent it does not exceed 30% of their net worth. The Corporation's receipts are expected to exceed expenditures by $37 million in 1980 and $46 million in 1981. Under current law, the Corporation would be required to cover all terminating multiemployer plans on May 1, 1980. The budget estimates reflect pending legislation proposed last year to substitute a comprehensive program to prevent termination of multiemployer plans. Under the proposal, financially troubled multiemployer plans would have to take corrective actions to avoid near- or longterm insolvency. Should a plan become unable to pay the full level of guaranteed benefits, the insurance program would make loans to enable such benefits to be paid. Loans would not be available to plans that had not taken corrective action. This legislation is proposed to be effective on May 1, 1980. INCOME SECURITY 267 FEDERAL BENEFITS FOR THE AGED (In millions of dollars) 1979 actual 1980 estimate 1981 estimate Cash benefits: Covered employment: Social security (0ASI) members Federal civilian employees Railroad employees Uniformed services members Coal miners Supplemental security income Income-tested veterans pension 68,991 6,187 3,198 832 1,128 1,685 3,192 79,541 7,445 3,461 967 1,376 1,774 3,431 91,121 8,535 3,726 1,107 1,345 1,832 3,727 Subtotal, cash benefit outlays 85,213 97,995 111,393 24,647 4,329 512 1,634 59 28,362 4,949 616 2,044 71 31,316 5,532 689 2,515 80 31,181 36,042 40,132 116,394 134,037 151,525 (80,336) (36,058) (92,790) (41,247) (105,834) (45,691) In-kind benefits: Medicare Medicaid Food stamps Subsidized public housing Other in-kind Subtotal, in-kind benefit outlays Total, outlays Allocated to income security (function 600) Allocated to other national needs Tax expenditures.—A variety of income exclusions, tax deferrals, and credits assist the aged, retired, and disabled. The exclusion from income subject to tax of all social security and most railroad retirement benefits without regard to an individual's income from other sources results in an estimated tax expenditure of $9.1 billion in 1981. The exclusion from income of benefits for the disabled results in an estimated tax expenditure of $2.5 billion in 1981. The tax expenditures resulting from the extra personal exemption for those over 64 and the blind, and from tax credits for the elderly will reduce 1981 receipts by an estimated $2.3 billion. The Revenue Act of 1978 significantly increased the level of tax expenditures going to elderly homeowners. The new provisions that allow a oncein-a-lifetime tax exemption on capital gains up to $100,000 on the sale of a principal residence will reduce tax collections by an estimated $0.6 billion in 1981. Tax expenditures also provide incentives for employers to provide their workers with pensions and other benefits such as life and health insurance and supplemental unemployment compensation. Excluding the cost of these benefits from income results in an estimated tax expenditure of $16.7 billion in 1981. Acquiring life insurance is encouraged by the Government through exclusions from income of interest earned on policies that reduce premiums. 268 THE BUDGET FOR FISCAL YEAR 1981 This exclusion will result in an estimated 1981 tax expenditure of $3.9 billion. Federal employee retirement and disability insurance— Outlays for Federal civilian retirement and non-work-related disability insurance are estimated to increase from $15 billion in 1980 to $17 billion in 1981. These Federal programs are estimated to have 1.8 million beneficiaries in 1981. (Military retirement is discussed under national defense.) The Department of Labor, through the Federal Employee Compensation Act program, provides tax-free cash and medical benefits to Federal employees or their survivors, for job-related injuries, illnesses, or deaths. Other Federal agencies subsequently reimburse the Department for payments made on behalf of their employees. About 47,500 workers with long-term disabilities or their survivors are expected to receive monthly payments in 1980 and about 48,200 are expected to receive them in 1981. Over $1 billion in benefits is expected to be paid in 1981. After reimbursements from other agencies, outlays are estimated to increase from $252 million in 1980 to $381 million in 1981. There is evidence that the Federal employee workers compensation system is being misused. Consequently, legislation will be proposed to amend the Federal Employees Compensation Act to remove (1) incentives to file questionable claims; (2) disincentives for injured workers to return to work when they are medically able; and (3) inequities that now may provide greater compensation than a recipient would have received as a full-time employee. This legislation would encourage both employees and employers to participate fully in the return of injured workers to employment as soon as they can. The proposals include provisions designed to reduce fraud and to simplify the program. Such provisions would eventually produce savings in both compensation and administrative funds. Unemployment compensation.—About 97% of wage and salaried employment in the United States is covered by unemployment compensation that provides support to individuals who are temporarily out of work and who are searching for jobs. This income to unemployed workers also helps support aggregate purchasing power during slack periods in the economy. It is estimated that an average of 2.9 million workers per week will receive unemployment benefits during 1980 and 3.4 million in 1981. Outlays for unemployment compensation are estimated to increase from $15.6 billion in 1980 to $18.8 billion in 1981 as a result of increases in wages on which benefits are based, and a rise in the projected average unemployment rate from 6.7% in 1980 to 7.4% in 1981. INCOME SECURITY 269 Tax expenditures.—Unemployment compensation benefits received by single persons with an annual income, including unemployment compensation, of under $20,000 (under $25,000 for married couples) are excluded from taxable income. The resulting tax expenditure is estimated at $3.1 billion in 1981. Public assistance and other income supplements.—This mission includes programs that provide cash, food, and shelter for people in need. Groups eligible for such aid include families with dependent children, the aged, the blind, and the disabled. A major administration proposal for reform of the welfare system will provide significant improvements in welfare programs and in benefits for the needy. Welfare reform.—The administration's welfare reform proposal, as contained in the jobs and cash assistance bills submitted to the Congress, is designed to (1) establish a national basic minimum level of assistance to families; (2) extend eligibility for cash assistance to two-parent families in all States; and (3) provide public jobs and training opportunities for the principal earner in those families under the program of aid to families with dependent children (AFDC) when he or she cannot find a private sector job. The earned income tax credit (EITC) would be expanded to increase incomes of working poor families, thus increasing the incentive to work and reducing welfare costs. The resources of the CETA program and tax credits will be relied on to provide opportunities for work and training before new funds are added. State and local governments will receive fiscal relief for welfare expenditures—including costs due to reform—as a result of both increased Federal matching rates for States* AFDC costs and funding to hold States harmless for certain increased welfare costs. Upon enactment, the administration will promptly seek financing to implement welfare reform. Estimates for welfare reform are covered by the allowance for contingencies in the budget. Supplemental security income.—The supplemental security income (SSI) program, which is administered as well as financed by the Federal Government, provides cash assistance to needy aged, blind or disabled individuals. The basic Federal grant is supplemented by State payments in certain States. The number of recipients was 4.2 million in 1979 and is expected to remain at that level through 1981. Federal outlays in 1981 are estimated to reach $6.9 billion, compared with $6.4 billion in 1980. The increased outlays result from automatic increases in the benefit payments to offset inflation. The high error rates in the program's initial years have been markedly reduced. Much of this reduction is due to concentrating 270 THE BUDGET FOR FISCAL YEAR 1981 staff resources on error-prone cases, and extensively cross-checking benefits provided by other benefit programs. The Department of Health and Human Services intends to reduce further the number of errors without sacrificing equity or incurring substantial new program costs. For example, legislation has been proposed to shift to a system under which a recipient's eligibility and benefits would be determined by taking into consideration the past month's income rather than trying to forecast income as under current law. AFDC and related programs— The program of aid to families with dependent children (AFDC) assists States and localities in providing cash assistance to the needy. Federal outlays for these grants are estimated at $7.4 billion in 1981 compared with $7.0 billion in 1980 and $6.6 billion in 1979. The 1981 outlay increase results from moderate increases anticipated both in the number of AFDC families and in the average benefit payment. Errors and abuses are being combatted through closer cooperation between the States and the Department of Health and Human Services. In addition, vigorous management improvement efforts, such as welfare management and training institutes, are focusing on welfare administration in selected States. Child support payments are being collected from parents who are legally liable for such support. This results in a decrease in Federal, State, and local AFDC expenditures. Legislation has been proposed to include stepparents' income in calculating AFDC eligibility and benefits, and to standardize allowable work expenses. These proposals, which are part of pending welfare reform proposals, will simplify administration and reduce costs. Legislation has also been proposed to revise the child support enforcement program by extending enforcement and collection activities to alimony, permitting access to wage information of the Social Security Administration, and not terminating AFDC eligibility before a regular pattern of support payments for the family can be established. Finally, legislation is being proposed to bar the discharge of child support obligations in bankruptcy proceedings. Earned income tax credit—Since 1975, the Federal Government has provided a tax credit for low-income workers that reduces the amount of income tax they are liable to pay. Where the credit amounts to more than the income taxes owed, the worker receives a check for the difference. Beginning in 1979, provision was made for the credit to be received in advance through additions to wages. In 1981 the outlays for these payments are estimated to be $1.6 billion. The cost of this program, including revenue losses and outlays is estimated to total $1.9 billion in 1981. INCOME SECURITY 271 Food stamps.—Food stamps allow needy Americans to buy food. Monthly allotments of stamps are provided for people based on their income and household size, and are adjusted periodically to reflect changes in food prices. Most recipients have incomes well below the national poverty level. Food stamps will help to improve the diet of 20.4 million lowincome people a month in 1981 at an annual cost of $9.7 billion. The Federal Government finances food stamp costs and shares half of the administrative costs with the States. States administer the actual distribution of food stamps. The original Food Stamp Act of 1964 required that a recipient pay a portion of the value of food stamps. The amount to be paid by the recipient was dependent on income. The Federal Government then granted additional "bonus" food stamps. The requirement to pay a portion of the value of food stamps was eliminated in the Food Stamp Act of 1977—a change that helped people who could not afford the initial purchase. As a result of the elimination of the purchase requirement, significant increases in participation have occurred in rural areas and among the elderly poor. In the past year, an additional 1 million of the poorest families have joined the program. Pending legislation is designed to improve the efficiency of administering food stamp benefits. Under current law, rewards are given to States that operate exemplary programs. Under the administration's proposal, States that fail to reduce high error rates will be liable for a portion of the benefits issued erroneously. Recent administrative improvements in calculating food stamp benefits will reduce food stamp costs by $85 million in 1981. Legislative changes are also pending to allow States to adopt procedures to improve food stamp administration. One change would permit States to calculate food stamp eligibility on the basis of a recipient's past month's income rather than trying to forecast the next month's income. Another would allow States to require that certain food stamp households more frequently report their income. The pending legislation would also remove the specific 1981 food stamp authorization ceiling contained in the Food Stamp Act of 1977. Food stamp spending could then reflect annual appropriations based on current economic and social conditions. Women, infants, and children (WIC).—The special supplemental food program for women, infants, and children has grown significantly since it was introduced in 1973 as a pilot program. Outlays have increased from $14 million in 1974 to $735 million in 1980 and will rise to an estimated $903 million in 1981. Over 2 million people—pregnant and lactating women, infants, and children 272 THE BUDGET FOR FISCAL YEAR 1981 under age 5—will receive food packages monthly. Recipients must be both economically and nutritionally needy. WIC food packages consist of dietary supplements of milk, cheese, eggs, juices and other foods. Recent evidence suggests that WIC expenditures help improve the health of the recipients and minimize later medical costs. Both State and Federal costs for medicaid and special education are reduced by WIC. Efforts will be intensified to direct WIC benefits to people who live in areas of need, and to tailor WIC food packages carefully to the nutritional requirements of needy people. School lunch and other nutrition programs.—A number of federally assisted programs subsidize meals to young people in schools, child care programs, summer camps, and similar institutions. Over 25 million children will receive these subsidies in 1981 at an estimated cost of $3.6 billion. Legislation is proposed to better direct these subsidies to needy children. Included in the proposals are revised eligibility rules and reduced subsidies for higher income children. In schools that receive Federal subsidies for milk served during breakfast or lunch, subsidies for extra milk will be reduced for higher income students. In addition, the assessment, improvement, and monitoring system (AIMS) will be fully underway in 1981. As currently proposed, AIMS will assure that Federal payments for these activities are accurate and made in accordance with the law. Surplus commodities and cash in lieu of commodities are also made available for use in nutrition programs for the elderly. In 1981 about 158 million meals will be subsidized at a cost of $76 million. Housing assistance.—The Federal Government provides a broad range of economic assistance to support housing for our citizens. The emphasis of the direct expenditure programs administered by the Department of Housing and Urban Development (HUD) is on housing assistance, primarily rental subsidies, for low-income families and individuals. Outlays for these programs are estimated to grow by 24% in 1981 to $6.6 billion. HUD also provides operating subsidies for many subsidized housing projects; outlays for these subsidies are estimated to grow from $815 million in 1980 to $914 million in 1981. The 1981 budget supports three major HUD housing programs: • lower income rental assistance (section 8); • construction of public housing; and • homeownership assistance (section 235). The emphasis of the first two programs is to improve conditions for low-income individuals and families. The administration plans to add 300,000 units under these programs for 1981, a 25% increase INCOME SECURITY 273 above the enacted 1980 program level. The third, section 235, program provides interest rate subsidies for low-income homeowners. The administration is stressing the use of this program to reduce forced relocation of lower income families. Occupants of section 8 housing pay rentals equal to 15% to 25% of their family incomes. The Federal Government pays rental subsidies for the difference between the amounts the occupants pay and market rents. The Federal subsidy thus covers construction, financing, and operating costs over periods that range from 15 to 30 years. There are currently 898,000 families being assisted by this program, and it is estimated that about 740,000 additional families will be assisted out of budget authority already available through 1980. For 1981, the section 8 program will consist of the following units: • 114,700 new units at an average annual Federal cost of $5,235 each over 20-30 years; • 23,300 substantially rehabilitated units at an average annual Federal cost of $6,125 each over 20-30 years; • 40,000 moderately rehabilitated units at an average annual Federal cost of $4,200 each over 15 years; and • 80,000 existing units that will each cost an estimated $3,000 per year over the 15-year contract period. Currently, there are 1.1 million occupied units of public housing and another 157,000 units are scheduled for construction under budget authority already enacted. For 1981, the administration's proposed subsidized housing program would provide for an additional 42,000 units of public housing, including 4,000 units for Indians on reservations. These units would be constructed at an estimated average cost of $57,368 per unit, except for Indian housing that is estimated to cost $71,698 per unit. The average annual Federal costs for public housing, which reflect only the construction and financing costs, are estimated to be $5,340 per unit for traditional public housing and $6,790 for Indian housing over a 30year period. Tenants in public housing have low incomes and usually must pay up to 25% of their incomes for rent. Because rent revenues are insufficient to cover operating costs at more than 95% of the public housing projects, the Federal Government also provides operating subsidies for public housing at an estimated outlay cost of $811 million in 1981. The Federal Government also funds capital improvements to the existing stock of public housing units through a separate public housing modernization program. The administration is proposing a significant change in the public housing modernization program to address the deterioration of public housing units in some areas. In addition to the $1.0 billion in budget au310-000 Q - 80 - 1Q 274 THE BUDGET FOR FISCAL YEAR 1981 thority requested for the modernization program in 1981, the administration proposes that, beginning in 1980, local housing officials be allowed to use up to 50% of the appropriations for new public housing production to make major renovations and other repairs to badly deteriorated public housing projects in their areas. The homeownership assistance program (section 235) provides a mortgage interest subsidy to households with incomes less than 95% of the median income in the area in which they live. This assistance reduces mortgage interest rates to 4%. In recent years, lower income families have faced forced relocation resulting from new or improved housing in their neighborhoods that they could no longer afford. The administration is expanding its efforts to use this program to alleviate the pressure toward forced relocation. Last year, the ceiling on the size of the mortgage that can be subsidized under this program was raised in designated neighborhoods for families in danger of being forced out of their neighborhoods by revitalization activities. For 1981, the administration proposes to make eligible for this program up to 5,000 families who are living in apartments being converted to condominium or cooperative ownership in areas affected by revitalization. The budget also requests $41 million in 1981 budget authority for the troubled projects operating subsidy program. This program, enacted in 1979, is intended to maintain the solvency of financially troubled multifamily projects, thereby reducing FHA insurance claim payments, and help defray additional rent burdens for lowincome tenants by providing subsidies for short-term operating cost and financing repairs. Projects receiving such assistance must improve their management to correct the conditions that produced the financial problems. Eligible State-aided projects that meet these and other Federal requirements also may receive assistance. Other major forms of Federal support for the housing sector of the economy are tax expenditures and programs that provide and guarantee mortgage credit. The housing credit programs and related tax expenditures are discussed in the section on commerce and housing credit. In addition, State and local governments have made increasing use recently of tax-exempt bonds to provide below market rate mortgages to their citizens. These bonds are estimated to cause a loss to the Treasury of $1.6 billion in 1981. If left unchecked, this loss could grow to nearly $10 billion by 1985. For this reason, the administration supports legislation to eliminate the use of mortgage revenue bonds for single family housing. There are also tax expenditures generated through the financing of certain HUD subsidized housing programs. The most important of these involves the sale of tax-exempt financial instruments by State and local housing authorities to finance the construction of INCOME SECURITY 275 section 8 and public housing projects. With respect to public housing projects, the administration is proposing to phase out the use of this particular financing method and eventually end this tax expenditure by increasing direct Federal expenditures to sell the debt of local housing agencies to the Federal Financing Bank. This is expected to result in a $40 million increase in 1981 receipts. CREDIT PROGRAMS—INCOME SECURITY (In millions of dollars} 1979 actual Program Public housing operation and construction: Direct loans: New loans Repayments, sales, and adjustments ( - ) 1980 estimate 1981 estimate 278 -268 302 -301 Net loan outlays 9 1 Loan guarantees: New loans Net loan guarantees 9,451 483 10,000 200 10,825 2,000 -1 -1 Assistance to refugees: Direct loans: New loans Repayments, sales, and adjustments ( — ) Net loan outlays Off-budget Federal entity—Pension Guaranty Corporation: Direct loans: New loans 302 -302 * * -1 -1 Benefit 5 R p rn ajv m e n k i <u»Ipc a n d a r lIi t K t m p n k I\_ ' \ Net loan outlays 5 *S500 thousand or less. Refugee assistance.—Last year, the President announced that 14,000 Indochinese refugees per month would be resettled in the United States during 1980, more than twice the previous rate. In light of recent developments in Southeast Asia, this commitment will continue in 1981. In addition, the resettlement of about 59,000 Soviet and other refugees is anticipated in 1981. The administration plans to request funds for a varied program designed to speed the assimilation of refugees into American society. States are reimbursed by the Federal Government for their expenses in providing cash and medical assistance, social services, and English language and employment training to help integrate refugees into American society. In some areas with large concentrations of newly arrived refugees, school districts receive assistance through the Department of Education to offset the cost of educating Indochinese refugee children. Matching grants are also 276 THE BUDGET FOR FISCAL YEAR 1981 provided to several private voluntary organizations to aid in the permanent resettlement of Soviet and other refugees. Consistent with congressional appropriations action over the last 2 years, special assistance to States on behalf of Cuban refugees who arrived in the United States before 1978 is being gradually phased down. Outlays for the refugee assistance program are estimated to be $419 million in 1980 and $524 million in 1981. The regular Federal costs of assistance associated with refugees participating in AFDC, medicaid, food stamps and other programs are included in each of those programs. The administration has proposed the Refugee Act of 1979 to establish a permanent and systematic means to admit and assist refugees of special concern to the United States. Low-income energy assistance.—To help offset the impact of rising fuel costs on low-income families, the administration proposed two energy-related income assistance programs for 1980. The first program, special energy allowances, provides cash assistance to recipients of the supplemental security income program and grants to States for aid designed by the Governor to best fit the circumstances of a given State. This aid can be in the form of cash assistance, fuel bill payments, or other in-kind assistance. The special energy allowances program has received funding of $1.2 billion for 1980 and a new authorization will be sought for $2.0 billion in 1981. The second program, energy crisis assistance, provides grants to States to help low-income families experiencing energy-related emergencies. Funding of $0.4 billion has been enacted for 1980 and the same amount is requested for 1981 with a State matching provision. The new 1981 programs would be financed by revenues from the windfall profit tax and administered by the Department of Health and Human Services. Related programs.—There are a number of other programs that are related to income security, but their primary purpose is to meet other national needs and serve other major missions. The following table lists these income security-related programs that support other missions. INCOME SECURITY 277 FEDERAL OUTLAYS FOR INCOME SECURITY-RELATED BENEFITS SUPPORTING OTHER MAJOR MISSIONS (In millions of dollars) Benefit outlays Department, agency, and program 1979 actual 1981 estimate 1980 estimate Department of Health and Human Services: Hospital insurance Supplementary medical insurance Medicaid Public Health Service officers retirement 19,898 8,259 11,701 36 22,747 9,663 13,377 40 24,894 10,906 14,952 44 Total, Department of Health and Human Services 39,894 45,827 50,796 Veterans Administration: Disability and dependency and indemnity compensation Veterans and survivors pensions Life insurance (net subsidy) Other veterans benefits 6,961 3,481 549 35 7,546 3,772 551 32 8,240 4,120 569 28 Total, Veterans Administration 11,026 11,901 12,957 Department of Defense—Military: Military retirement 10,279 11,941 13,677 174 206 232 61,373 69,875 77,662 Department of Transportation: Coast Guard retirement Total, outlays 278 THE BUDGET FOR FISCAL YEAR 1981 VETERANS BENEFITS AND SERVICES National Needs Statement: • To meet the Nation's obligation to compensate veterans disabled while in military service for their loss of earning power. • To provide medical care to veterans for disabilities incurred while in military service. • To compensate the families of veterans who are killed in service or who die from service-related disabilities for the reduction in the family's earning power. • To help veterans of wartime and draft service return to civilian life on a social and economic basis comparable to their peers who did not perform military duty, • To provide psychological readjustment services and expanded training opportunities to Vietnam-era veterans with special needs. • To provide financial assistance to needy veterans and their survivors. The Federal Government's veterans benefits and services programs recognize and are intended to meet the special needs of veterans and their dependents and survivors that result from the sacrifices that veterans have made in military service to this country. Benefits compensate for loss of earnings resulting from servicerelated disabilities, provide medical care for physical and psychological disabilities suffered in military service, and assist in preparing returning veterans for civilian life. In addition, veterans benefits provide financial assistance to needy veterans of wartime service and to their survivors. This administration has sponsored and implemented a number of improvements in veterans programs. Two of these improvements are particularly significant: • Reform of the pension program. This reform, enacted in 1978, sharpened the focus of financial aid on truly needy veterans, while eliminating inequities in the previous program that allowed veterans in widely differing financial conditions to receive identical pensions. The pension reform legislation also introduced automatic annual cost-of-living increases in benefits. • Improvements in medical care. The number of veterans served by medical facilities of the Veterans Administration (VA) has been increased and the quality of that care improved. These improvements have been achieved in part by reducing the VETERANS BENEFITS AND SERVICES 279 length of hospitalization and increasing reliance on outpatient treatment. The administration is proposing further improvements in veterans benefits and services for 1981. The budget reflects legislative proposals that provide: • A 13.0% cost-of-living increase in compensation benefits for veterans with service-related disabilities. • A 10% increase in GI bill educational benefits. • A 2-year extension of the period of eligibility for certain readjustment benefits for needy and educationally disadvantaged Vietnam-era veterans. The budget also reflects further changes necessary to provide health care for the growing number of elderly veterans. During the 1980's the number of veterans over age 65 is expected to increase by 127% as virtually all of the 27 million veterans of World War II pass this age milestone. In anticipation of this change in the age structure of the veteran population, VA's medical care and research activities will devote increasing attention to the problems of aging veterans. This budget also provides, as a major initiative, substantially increased construction funds to maintain, renovate, modernize, and systematically replace aging VA medical structures in order to prevent deterioration of the physical facilities housing VA medical services. At the same time, several cost-saving legislative proposals are also included in the budget. These proposals, which are described in more detail later, would help to offset the costs of the proposed improvements in veterans programs. Outlays for veterans benefits and services are estimated to rise from $20.8 billion in 1980 to $21.7 billion in 1981. Outlays for veterans income security programs, primarily compensation and pensions, are expected to increase by $1.4 billion (11.8%) between 1980 and 1981, largely as a result of cost-of-living increases. In spite of the proposed 10% increase in GI bill benefits and extension of the period of entitlement for certain veterans, outlays for readjustment benefits are expected to decrease by $283 million (12.7%) over the same period because fewer veterans will be eligible for GI bill benefits. Outlays for the basic programs of hospital and medical care for veterans are proposed to increase by $175 million in 1981. Veterans housing programs are expected to produce negative outlays of $302 million in 1981 as a result of the sale of housing assets held by the Veterans Administration. Income security for veterans.—In addition to Federal income security programs for the general population, such as social security, several programs help certain veterans and their survivors maintain their income when the veteran is disabled, aged, or deceased. 280 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: PROVIDING VETERANS BENEFITS AND SERVICES (Functional code 700; in millions of dollars) Major missions and programs BUDGET AUTHORITY Income security for veterans: Compensation and pensions: Service-connected compensation: Existing law Proposed legislation Non-service-connected pensions Burial and other benefits Insurance programs: National service life insurance trust fund U.S. Government life insurance trust fund All other insurance programs Insurance program receipts 1981 estimate 1980 estimate 1979 actual 1982 estimate 1983 estimate 3,734 186 7,508 923 4,074 191 7,565 1,729 4,260 195 7,620 2,498 4,386 200 983 1,029 1,060 1,074 1,083 38 6 -458 36 5 -458 34 1 -445 32 5 -433 30 5 -422 Subtotal income security for veterans 11,212 11,869 13,346 14,428 15,399 Veterans education, training, and rehabilitation: Existing law Proposed legislation 2,510 2,279 1,822 193 1,446 165 1,187 121 2,510 2,279 2,015 1,611 1,307 5,374 462 275 5,855 -45 402 177 6,155 -353 675 192 6,465 -394 852 195 6,767 -390 954 198 6,112 6,388 6,669 7,118 7,529 638 638 34 658 -1 32 661 28 657 -1 32 666 672 688 690 692 Subtotal, education, training, and rehabilitation Hospital and medical care for veterans: Medical care and hospital services: Existing law Proposed legislation Construction Medical administration, research, and other. Subtotal, hospital and medical care.... Other veterans benefits and services: Undistributed VA overhead and other: Existing law Proposed legislation Non-VA support programs Subtotal, other benefits and servicesDeductions for offsetting receipts Total, budget authority 6,909 7,337 3,555 179 -4 20,495 -3 21,205 -3 22,716 -3 23,844 32 -3 24,926 Outlays for this mission are estimated to increase from $11.7 billion in 1980 to $13.0 billion in 1981. Service-connected compensation. —Monthly compensation payments are provided to veterans whose disabilities resulted from military service. The amount of the benefit depends on the degree to which average earnings of individuals with a particular disability are reduced. In addition, dependency and indemnity compensation payments are made to survivors of veterans who die from service-connected injuries. Recently enacted legislation increased compensation benefits by 9.9%, effective in October 1979. VETERANS BENEFITS AND SERVICES 281 NATIONAL NEED: PROVIDING VETERANS BENEFITS AND SERVICES—Continued (Functional code 700; in millions of dollars) Major missions and programs OUTLAYS Income security for veterans: Compensation and pensions: Service-connected compensation: Existing law Proposed legislation Non-service-connected pensions Burial and other benefits Insurance programs: National service life insurance trust fund U.S. Government life insurance trust fund All other insurance programs Insurance program receipts Subtotal, income security for veterans 1979 actual 1980 estimate 3,712 185 7,616 2,434 4,355 200 785 803 931 966 999 71 —60 -458 69 -62 -458 64 -54 -445 62 -50 -433 60 -52 -422 10,780 11,660 13,034 14,172 15,189 2,760 2,226 1,750 193 1,370 165 1,121 121 2,760 2,226 1,943 1,534 1,241 5,159 251 201 5,926 -45 274 226 6,101 -353 381 242 6,406 -394 539 215 6,765 -390 884 217 Subtotal, hospital and medical care.... 5,611 6,380 6,370 6,766 7,476 Veterans housing: Loan guaranty revolving fund Direct loan revolving fund Other (HUD participation sales trust fund). 207 —65 12 —32 -175 22 -195 -107 2 77 -68 -3 76 -64 -3 154 — 184 —300 6 10 598 654 655 656 658 - 1 - 1 Hospital and medical care for veterans: Medical care and hospital services: Existing law Proposed legislation Construction Medical administration, research, and other. Subtotal, veterans housing Other veterans benefits and services: Undistributed VA overhead and other: Existing law Proposed legislation Non-VA support programs Subtotal, other benefits and services.. Deductions for offsetting receipts Total, outlays 3,522 177 1983 estimate 7,540 1,662 4,230 195 Subtotal, education, training, and rehabilitation 7,411 1982 estimate 7,471 846 4,032 190 Veterans education, training, and rehabilitation: Existing law Proposed legislation 6,743 1981 estimate * 29 32 32 32 32 627 687 686 687 689 -4 -3 -3 -3 -3 19,928 20,766 21,731 23,162 24,603 * $500 thousand or less. Legislation will be proposed to provide a 13.0% cost-of-living increase in compensation benefits, effective in October 1980. The estimates for subsequent years assume similar annual cost-of-living 282 THE BUDGET FOR FISCAL YEAR 1981 increases, based on the projected consumer price index. An estimated 2.6 million veterans and their survivors are expected to receive compensation benefits in each of the years 1980 through 1983. Non-service-connected pensions.—Pensions are provided to needy wartime-service veterans who are aged or who have become disabled subsequent to their military service. Survivors of wartimeservice veterans also may qualify for pension benefits based on demonstrated financial need. The Veterans and Survivors Pension Improvement Act of 1978 sharpened the focus of veterans pension benefits upon needy, non-service disabled veterans. The Act liberalized benefits for the neediest veterans and survivors, while correcting most of the inequities that existed in the previous program. The reform legislation did away with most earnings exclusions, which had allowed veterans in widely differing financial conditions to draw identical pensions, and provided that pension benefits be reduced dollar-for-dollar with increases in earnings. In addition, the reform legislation provided for automatic cost-of-living increases each July starting in 1979. In all, 2.1 million needy veterans and their survivors are expected to receive $4.0 billion in 1981, $4.2 billion in 1982 and $4.4 billion in 1983. Burial and other benefits.—Families of deceased veterans who are buried in private cemeteries rather than VA National Cemeteries may receive allowances to apply toward the purchase of burial plots. Families of deceased veterans also receive burial benefits to assist in defraying veterans funeral expenses. Outlays for burial and other allowances are estimated to increase from $185 million in 1980 to $190 million in 1981. Life insurance.—Insurance programs for veterans and their survivors will provide $31 billion of coverage on 4.5 million policies in 1981. The servicemen's group life insurance program for military personnel will provide $61 billion of coverage on 3.1 million policies. Policy loans against life insurance reserves are expected to remain steady at about $170 million in new loans in 1981. Veterans education, training, and rehabilitation.—The GI bill provides education benefits ranging from college courses to vocational and on-the-job training. These benefits help eligible veterans make the transition from military to civilian life by helping them obtain the education they might have received had they not entered military service. Active duty servicemen and widows and children of veterans who have died or been totally disabled in military service also are eligible for these benefits. This budget proposes a 10% increase in GI bill educational benefits to help Vietnam-era veterans and eligible dependents and survivors continue to pursue their VETERANS BENEFITS AND SERVICES 283 educational goals in spite of increased costs. In addition, this budget reflects legislation proposed last year that extends the period of eligibility from 10 to 12 years for certain Vietnam-era veterans who have less than a high school diploma or who require on-the-job training to find employment. Another proposal improves and modernizes the vocational rehabilitation services offered disabled veterans. Those who enter military service after 1976 are eligible for the post-Vietnam-era education program, which allows them to set aside $50 to $75 from their monthly pay to finance future education. These amounts are matched by the government on a two-forone basis and returned in education payments after they are discharged. Current authority for this program expires on December 31, 1981. The VA is currently conducting a study to determine whether to seek extension, and to evaluate changes in the program as it currently exists. Over 65% of all Vietnam-era veterans have utilized GI bill benefits. The number of GI bill trainees will continue to drop in the future as the number of eligible veterans becomes smaller. In 1981, nearly 1.0 million GI bill trainees are expected to participate in the program, a reduction from 1.2 million in 1980. Thus, outlays for this mission are estimated to decline from $2.2 billion in 1980, to $1.9 billion in 1981, $1.5 billion in 1982, and $1.2 billion in 1983. The administration continues to seek enactment of its pending legislative proposal to end payments for general flight training and correspondence courses, which do not promote the readjustment of veterans to civilian life. This proposal would reduce outlays by $56 million in 1981. Hospital and medical care for veterans.—The Veterans Administration provides hospital and medical care to veterans by operating a nationwide medical care system. In 1981, it will operate 172 hospitals, 229 outpatient clinics, 97 nursing homes, and 16 domiciliary facilities. Outlays for medical programs are expected to be $6.4 billion in both 1980 and 1981. Savings from proposed legislation requiring reimbursement from health insurers for the treatment of non-service-connected disabilities are offset by higher outlays for existing programs. Medical care and hospital services.— In 1981, the VA will continue to reorder its health care program to provide the most appropriate type of care and to accommodate the anticipated influx of World War II veterans, most of whom will reach age 65 during the decade beginning in 1980. Since these veterans become eligible for a wide variety of medical benefits under current eligibility criteria, the VA anticipates a rapid increase in the number of veterans in need of long-term and geriatric care. Increases in the cost of VA 284 THE BUDGET FOR FISCAL YEAR 1981 health care will be minimized through increased efficiencies. VA's medical care system will continue to recognize the needs of servicedisabled veterans above all other demands for medical care. Efforts to improve the quality of medical care, especially for service-disabled veterans, will continue. Under the budget proposals, the research programs of the VA medical systems will grow modestly between 1980 and 1981, and training of health care professionals will continue, primarily through the affiliation of 136 VA hospitals with medical schools. The Veterans Health Care Amendments of 1979 (P.L. 96-22) provided legislative authority to allow VA to contract with community halfway houses and other programs for a pilot drug and alcohol abuse treatment effort. That legislation also provided for the establishment of a program of psychological counseling and readjustment services for Vietnam-era veterans, and authorized the VA to set up a pilot program of preventive health care. The Veterans Health Program Extension and Improvement Act (Public Law 96151), also enacted in 1979, authorized the VA to provide outpatient care to all veterans of World War I and to contract for private care for the treatment of medical emergencies. In addition, it extended certain expiring programs and authorized the Veterans Administration to put a limit on travel reimbursement to veterans being treated for non-service-connected disabilities. The administration will continue to seek enactment of its proposal to obtain reimbursement from health insurers for the treatment of non-service-connected disabilities of insured veterans. This proposal recognizes that an insurer's obligation to premium-paying veterans is no different from its obligation to insured non-veterans and is expected to save $0.3 billion a year beginning in 1981. The administration will also continue to seek enactment of its proposal to terminate certain dental benefits. This is estimated to save $32 million in 1981 and decreasing amounts in future years. Construction of hospital and extended care facilities.—Budget authority of $660 million is requested for VA construction in 1981, a record funding level. This is an increase of 67% over the 1980 request. The 1981 request recognizes the critical need for renovation and modification of many of the aging facilities in which VA medical services are provided. This includes funding for new nursing homes and new outpatient clinics. Finally, budget authority of $15 million is requested in 1981 for grants to States for construction of extended care facilities, permiting the establishment or repair of additional State veterans homes for the care of aging veterans. Veterans housing.—VA mortgage loan guarantee and direct loan programs are expected to assist 364,680 veterans obtain mortgage 285 VETERANS BENEFITS AND SERVICES CREDIT PROGRAMS—VETERANS BENEFITS AND SERVICES (In millions of dollars) 1979 actual Program Income security programs: Direct loans: New loans Repayments, sales and adjustments ( - } 1980 estimate 172 -129 Net loan outlays 1981 estimate 168 -116 167 -104 43 52 62 9 -4 9 -6 9 -7 5 4 2 394 -369 568 -683 611 -648 Net loan outlays 25 -115 -37 Loan guarantees * New loans Net loan guarantees 7,375 2,938 9,524 6,317 9,584 6,428 Education programs: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Housing programs: Direct loans: New loans Repayments, sales and adjustments ( - ) 1 1 Includes sales of direct loans. * Includes guarantees of sales of direct loans. loans totaling $19.9 billion in 1981. Sales of VA-held housing assets (VA mortgages) are expected to produce negative outlays of $302 million in 1981. Other veterans benefits and services.—The Veterans Administration administers a national cemetery system for burial of eligible veterans, servicemen, and their survivors. Under administration policy, one large active national cemetery has been designated as the regional cemetery in each of the 10 Federal regions. New regional cemeteries are under construction in regions I, II, III and IX; existing cemeteries have been designated in regions VI, VII, VIII, and X. In addition, Fort Gilliam, near Atlanta, Ga., has been selected as the site of the Region IV National Cemetery and Fort Custer, Mich., has been selected as the site for Region V. The budget again provides $5 million in 1981 budget authority for grants for construction of State veterans cemeteries authorized in 1978. Other VA expenditures include the cost of undistributed nonmedical program administration, both in VA headquarters and in field units. Outlays for these programs are estimated to be $687 million in 1980 and $686 million in 1981. 286 THE BUDGET FOR FISCAL YEAR 1981 Tax expenditures.—Veterans compensation and pension benefits are excluded from taxable income. The revenue losses from these exclusions in 1981 are estimated to be $1,1 billion and $55 million, respectively. GI bill benefits are also excluded from taxable income, which results in an estimated 1981 tax expenditure of $0.1 billion. Related programs.—In addition to the assistance provided under the Federal Government's special programs for veterans, many veterans receive assistance from other income security, health, housing, education, training, employment, and social services programs supported by the Federal Government and available to the general population. Some of these programs have components specifically intended to assist veterans. For example, the Department of Labor has instituted a special program to aid disabled veterans in need of job placement and related services, with anticipated outlays of $24 million in 1981, The Department of Labor also takes steps to ensure that qualified veterans participate fully in the training and related services available under the Comprehensive Employment and Training Act. Firms holding Government contracts are required to list their job vacancies with the State employment service and are required to take affirmative action to employ Vietnam-era and handicapped veterans. There is also a program that provides special priority for the appointment of Vietnam-era veterans to positions within the Federal Government. ADMINISTRATION OF JUSTICE 287 ADMINISTRATION OF JUSTICE National Needs Statement; • Represent the interests of the public in civil litigation and on other legal matters. • Maintain public order and enforce Federal statutes. • Provide those accused of crimes with fair and prompt trials. • Operate humane detention and corrections facilities for persons charged with or convicted of violating Federal laws. • Assist in the improvement of State and local criminal justice systems. Ours is a pluralistic society bound together by a body of laws and legal institutions that lend order and predictability to our lives. The Federal Government will spend $4.7 billion to provide for the equitable administration of justice in 1981, while States, counties, cities and towns will spend close to $25 billion. The principal responsibility for maintaining order and administering the laws has always rested with State and local governments. Beginning in the late 1960's, however, the amount of Federal assistance extended to other levels of government to improve the administration of justice grew quite rapidly. Such assistance has included: • participating in criminal investigations and prosecutions in cases in which the Federal Government and the States share concurrent jurisdiction; • training State and local officials, providing'technical assistance and services, maintaining national fingerprint records, and facilitating the exchange of information on criminal activities; and • financing demonstration projects and grants to improve police departments, correctional institutions, judicial systems, and State planning capabilities. Assistance to State and local governments was expanded principally because of widespread concerns about growing domestic disorders and violent street crime. Although the Federal Government is not directly responsible for maintaining order at the local level, it was recognized that local capabilities were inadequate and that State and local governments needed help to improve their criminal justice systems. These circumstances have changed. Partly because of Federal programs, local authorities are far better trained and equipped to 288 THE BUDGET FOR FISCAL YEAR 1981 deal with all forms of crime than they were a decade ago. Equally important is the improved financial condition of States and municipalities. It is now possible to begin to reduce Federal expenditures and personnel resources devoted to State and local problems, and to increase resources for efforts targeted at Federal priorities that cannot be undertaken at the local level. This is a theme of the 1981 budget for the administration of justice. A second theme relates to the setting of priorities on matters that are solely Federal in jursidiction. Zero-base budgeting techniques and improved management control systems now allow policy officials to identify tradeoffs between programs, which could not always be done using traditional budgeting procedures. For 1981, the administration's highest law enforcement priorities are foreign counterintelligence activities, reduction of organized crime, white collar crime, and traffic in narcotics and dangerous drugs, as well as the promotion of the integrity of public officials, and the protection of individual civil rights. A third theme of the budget is an emphasis on efficiency and improved coordination among Federal institutions. Reorganizations have played a part, but in this area the administration's principal contribution to improving the machinery of government has been to reduce jurisdictional disputes and unproductive duplication of efforts by competing agencies. Federal law enforcement activities.—The law enforcement mission is the most costly component of the administration of justice. In addition, law enforcement is a personnel-intensive activity and the President is committed to reducing the size of the Federal work force. Rigorous attention to national priorities has made it possible to propose an overall staff reduction of about 200 employees in 1981 without any appreciable loss in program effectiveness. Higher operating costs and especially increased fuel costs will more than offset the savings realized through staff reductions, but outlays are expected to increase by only $42 million or 1.9% over 1980—a significant achievement given recent very high rates of inflation. The Federal Bureau of Investigation (FBI) enforces a broad range of criminal statutes, and for many years has worked closely with State and local authorities to support this mission. The budget contemplates some shifting of FBI personnel from programs that assist State and local governments to criminal activities that are solely the responsibility of the Federal Government, or to investigations that require the attention of the Federal Government because criminal activities cross jurisdictional lines. FBI staff targeted at organized crime, white collar crime, and foreign counterintelligence will increase by more than 200, while personnel assigned to general law enforcement training, forensic laboratory services, and ADMINISTRATION OF JUSTICE 289 NATIONAL NEED: ADMINISTRATION OF JUSTICE (functional code 750; in millions of dollars) Major missions and programs BUDGET AUTHORITY Federal law enforcement activities: General investigation (FBI) Narcotics violation investigation (DEA) Alcohol, tobacco and firearms investigation (ATF) Border enforcement activities (Customs and INS) Protection and other activities (Secret Service) Other enforcement Subtotal, Federal law enforcement activities 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 584 194 614 202 637 209 649 215 658 222 137 144 147 151 154 753 795 822 838 854 145 252 186 280 167 310 169 322 173 333 2,065 2,220 2,292 2,344 2,394 508 -6 689 344 519 -6 723 368 Federal litigative and judicial activities: Civil and criminal prosecution and representation: Existing law Proposed legislation Federal judicial activities Representation of indigents in civil cases.... 397 456 523 270 627 300 497 -3 657 321 Subtotal, Federal litigative and judicial activities 1,190 1,383 1,473 1,535 1,604 339 656 -17 327 496 -12 355 582 -12 363 625 -12 373 671 -12 4,234 4,415 4,689 4,855 5,029 Federal correctional activities Criminal justice assistance Deductions for offsetting receipts Total, budget authority the investigation of local crimes will decline by about 150. A onetime reduction of 300 clerical employees is planned; this temporary workforce was authorized 3 years ago for a special project related to fingerprint automation that is now completed. In addition, about 200 full-time clerical positions in the fingerprint identification division will be converted to part-time staff. This measure is intended to reduce the high employee turn-over rate by making these positions more attractive to others in the workforce. Outlays for the FBI are expected to increase by $20 million to $635 million in 1981 because of increased operating expenses. The Drug Enforcement Administration (DEA) will continue to concentrate on the disruption of organized trafficking in the most dangerous drugs. Increased emphasis will be placed on the investigation of complex financial transactions in the drug trade, which often leads to the arrest of high-level drug dealers who have violated various conspiracy, racketeering, currency control, and tax laws. Crop destruction at the point of origin will remain a key component of the administration's drug strategy; this practice will help to 290 THE BUDGET FOR FISCAL YEAR 1981 NATIONAL NEED: ADMINISTRATION OF JUSTICE—Continued (Functional code 750; in millions of dollars) Major missions and programs OUTLAYS Federal law enforcement activities: General investigation (FBI) Narcotics violation investigation (DEA) Alcohol, tobacco and firearms investigation (ATF) Border enforcement activities (Customs and INS) Protection and other activities (Secret Service) Other enforcement 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 586 185 615 200 635 206 649 214 658 221 131 144 146 151 154 730 797 814 838 854 139 221 187 281 165 301 169 318 173 328 1,992 2,224 2,266 2,339 2,388 388 457 488 254 632 300 485 -3 659 329 498 -6 688 346 509 —6 720 364 1,130 1,389 1,471 1,527 1,587 Federal correctional activities Criminal justice assistance Deductions for offsetting receipts 337 710 —17 348 580 -12 357 618 -12 380 676 -12 384 651 -12 Total, outlays..... 4,153 4,530 4,699 4,910 4,999 Subtotal, Federal law enforcement activities Federal litigative and judicial activities: Civil and criminal prosecution and representation: Existing law Proposed legislation Federal judicial activities Representation of indigents in civil cases.... Subtotal, Federal litigative and judicial activities reduce the supply of dangerous substances that would otherwise have to be intercepted at the Nation's borders or searched out in the interior—both extremely costly, personnel-intensive operations. The 1981 budget, therefore, proposes only a small personnel increase for domestic enforcement and outlays of $206 million, $6 million more than in 1980. For the Immigration and Naturalization Service (INS), The budget provides staff above 1979 levels to patrol the Nation's borders, facilitate the processing of refugees from Southeast Asia and Eastern Europe, and improve operations within the United States. However, the administration's proposals do not provide for the full border patrol increase authorized in the last session of the Congress because the administration does not believe that this increase would, by itself, make a significant contribution to border enforcement. Illegal immigrants are drawn to the United States by high wages, and there are no Federal restrictions against hiring those ADMINISTRATION OF JUSTICE 291 who are in the country illegally. Until the Select Commission on Immigration and Refugee Policy issues its report, which should assist in developing agreement on statutory changes to remove the incentives for illegal immigration, large budget increases for enforcement would be unproductive. The budget proposes outlays of $347 million in 1981, only $12 million more than in 1980. Late last year the General Accounting Office criticized Federal agencies for inadequate coordination of border enforcement activities. Although this is a problem of long standing, there is considerable evidence of improvement. In 1977, the President's Reorganization Project addressed the problems of duplication of effort and lack of coordination between Federal border agencies. It was decided that organizational changes were not appropriate at that time. Nevertheless, the study and consultations encouraged the agencies to address coordination problems and find solutions short of reorganization. Today, the level of cooperation between the several Federal agencies with border responsibilities is higher than ever before. The Customs Service and the INS are adopting joint "one-stop" inspection procedures that minimize delays to travelers and reduce the number of inspectors at ports-of-entry. They are also experimenting with shared radio communications systems and shared information systems. The El Paso Intelligence Center is now staffed 24 hours a day with representatives of 6 Federal agencies providing information on all aspects of drug smuggling. To curtail illegal drug distri-' bution in the southeast, the administration has established a working group that includes the DEA, the Criminal Division of the Department of Justice, the Customs Service, the Coast Guard, and the Department of State. There is now close cooperation and coordination between Federal investigative agencies, the Criminal Division, the U.S. Attorneys, and the border interdiction forces. It is not yet possible to identify precisely the total amount of Federal resources devoted solely to border enforcement. In the course of the next 12 months, the administration will work to develop this information. High priority is assigned to combating fraud and waste in Government programs. Inspectors General are now in place in 14 major departments and agencies. In May 1979 the President created an executive group, chaired by the Attorney General, which brings the Inspectors General together in a concerted effort to develop more effective procedures and better trained personnel. In late 1979, an office for civil rights policy was established within the Office of Management and Budget. This office now assists in examining agency budget submissions for civil rights enforcement programs. This should help to assure that a unified and cohesive civil rights policy emanates from all Federal agencies. 292 THE BUDGET FOR FISCAL YEAR 1981 It should also improve the coordination of civil rights activities within the Federal Government, result in more effective civil rights law enforcement, and reduce the administrative burden on industries and agencies that are subject to civil rights laws. The responsibilities of the Equal Employment Opportunity Commission, which enforces statutory prohibitions against job discrimination, were recently expanded as the result of a reorganization of civil rights functions within the Federal Government. The budget proposes a staff increase for the Commission to improve coordination among agencies and the Federal Government's own equal employment opportunity program. Outlays are expected to increase from $120 million in 1980 to $135 million in 1981. Civil rights enforcement activities of the Department of Health, Education, and Welfare are to be divided between two offices — one in the Department of Health and Human Services, and one in the new Department of Education. These offices will be responsible for enforcing statutes that prohibit discrimination by recipients of Federal funds. They will investigate complaints about discrimination, conduct periodic reviews, negotiate to secure compliance, initiate enforcement proceedings, and promote voluntary compliance. Due in part to expanded staffing, which will permit increased activities, 1981 budget outlays of the two offices are estimated at $74 million, or $6 million more than in 1980. Resources devo,ted to civil rights that are classified in other functions are discussed in Special Analysis J in the Special Analyses volume of the budget. Federal litigative and judicial activities.—The Department of Justice litigates all of the Federal Government's criminal cases and most civil cases, although the Department has only 22% of the Government's civilian lawyers. While the number of criminal cases has been dropping as prosecutors concentrate on a more select group of complex criminal activities (organized crime, white collar crime, illegal drug traffic, and public corruption), the number of civil case filings has ballooned. In response to this civil workload on the Department's litigators, the administration is following the recommendations of the President's Reorganization Project for improved coordination of litigation by the Department and delegation of litigating responsibilities for some civil cases to the general counsels of other Federal agencies. Other administration proposals include: • an increase in the Department's Criminal Division to staff new white collar crime enforcement units; • an increase in the Department's Civil Rights Division to prosecute more criminal violations and coordinate efforts to pre ADMINISTRATION OF JUSTICE 293 vent systematic discrimination in Federal assistance programs; and • continued support for legislation to reduce the workload of the U.S. Marshals Service by shifting responsibility for the service of private process to the private sector. Outlays for civil representation, criminal prosecution and the U.S. Marshals Service are expected to rise from $457 million in 1980 to $482 million in 1981. Budget estimates from the judiciary are forwarded to the Congress without modification. The Administrative Office of the U.S. Courts has estimated outlays of $659 million in 1981 for the Supreme Court, the appellate and district courts, and other judicial activities—a 4% increase over current estimates for 1980. When inflation is taken into account, this represents a relative stabilization of budgetary resources. The Bankruptcy Reform Act of 1978 established an independent system of bankruptcy courts and a pilot program to test the value of U.S. trustees. While bankruptcy proceedings cost the Federal Government $38 million in 1979, under the new system bankruptcy administration is expected to require outlays of $60 million in 1980 and $65 million in 1981. The Legal Services Corporation funds local programs that provide free civil legal assistance to the poor. Corporation outlays have grown from $71 million in 1975 to an estimated $300 million in 1980. In 1981, outlays of $329 million are proposed for direct legal services, demonstration projects to serve institutionalized persons, and increased training for legal services lawyers and paralegals. Social services grants, general revenue sharing, and other Federal programs outside of the administration of justice function also provide funds that can be used, in part, for legal services. Because the primary obligation for legal services rests with the private bar, the administration will continue to encourage and coordinate fulfillment of these obligations. Federal correction system.—The Federal Government is responsible for the care and custody of prisoners convicted of violating Federal laws as well as individuals charged with crimes and detained for trial or sentencing. The Federal prison population is changing. In 1970, more people were in prison for auto theft than for any other crime. Today, those convicted of robbery and burglary lead the list, while drug offenses run a close second. The average daily population in 1970 was 20,687. The average daily population peaked in 1978 at 29,347, and since then has dropped to less than 24,000. This decline is attributed to: (1) the increased use of halfway houses, (2) shifts in prosecutorial policy resulting in fewer imprisonments, and (3) 294 THE BUDGET FOR FISCAL YEAR 1981 modifications in parole guidelines which have reduced incarceration times. Because the prison population is smaller, and because reclassification efforts have identified many prisoners who can be held in less secure institutions, three penitentiaries can be closed—McNeil Island in 1981, Atlanta in 1984, and Leavenworth in 1985. Plans to construct two new facilities in Detroit and central California have bfeen cancelled since the facilities are no longer needed. The Bureau of Prisons intends to open a new institution at Lake Placid and a new prison camp in central California to house some of the prisoners who will be displaced by the closing of the old penitentiaries. Although the prison population is declining, inflation is driving up the costs of operations. In consequence, outlays for operating correctional facilities are expected to increase from $348 million in 1980 to $357 million in 1981. Criminal justice assistance.—Early in this administration the President's Reorganization Project and the Department of Justice proposed a thorough reorganization of the Law Enforcement Assistance Administration. A new Office of Justice Assistance, Research and Statistics (OJARS) was approved by the Congress in 1979. The office will provide support and coordination for (1) a National Institute of Justice to conduct research into criminal subjects, (2) a Bureau of Justice Statistics to gather and disseminate statistics on criminal and civil matters and to assist State and local governments, and (3) a somewhat smaller Law Enforcement Assistance Administration to administer most grant programs. This organizational change will reduce paperwork and give cities and counties more direct control over the Federal funds they receive for criminal justice assistance. A new formula grant program will provide funds directly to States, cities, and counties, and a national priority grant program will encourage government and private nonprofit organizations to carry out programs that have proved to be effective in strengthening the criminal justice system. Increased emphasis will be placed on programs for serious juvenile offenders administered by the Office of Juvenile Justice and Delinquency Prevention. Outlays for OJARS are expected to reach $607 million in 1981, compared to $570 million in 1980. Related programs.—K number of agencies classified in other functions support the administration of justice. Over 100 agencies and regulatory commissions perform some type of law enforcement activity. About 30 Federal agencies, including the Departments of Agriculture and Labor, the Environmental Protection Agency, and most independent regulatory commissions have some litigation authority independent of the Department of Justice. ADMINISTRATION OF JUSTICE 295 CREDIT PROGRAMS—ADMINISTRATION OF JUSTICE (In millions of dollars) Program Law enforcement assistance: Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays 1979 actual 1980 estimate 1981 estmate 32 - 20 3 - 3 4 11 - 3 2 296 THE BUDGET FOR FISCAL YEAR 1981 GENERAL GOVERNMENT National Needs Statement: • Provide for a legislative system that is responsive to the Nation's people. • Provide effective and efficient central executive policy development and management. • Insure accountability in the use of resources. • Formulate tax and fiscal policies and conduct efficient and effective financial operation of the Federal Government. • Provide essential internal government housekeeping services, including property and personnel management. The general government function includes funding for a variety of entities that provide overall direction, policy and procedural guidance, funding, and resources management for the Federal Government. These include the legislative branch, the Executive Office of the President, and the agencies responsible for central tax collection, fiscal operations, personnel management, and property control and records management. It is the goal of the administration to improve the management and efficiency of finances, property, and personnel. To address national needs in general government the Federal Government will spend an estimated $4.9 billion in 1981. The budget includes proposals to: • continue to monitor private sector wage and price actions along with Government actions and policies that may contribute to inflation; • continue to improve cash management; • expand efforts to identify individuals and companies that do not file tax returns; • strengthen management control of contract administration and reduce opportunities for fraud and abuse; and • improve productivity in the Federal Government and strengthen agency executive development. Legislative functions.—By law, the budget estimates for the legislative branch are included in the President's budget without change. The legislative branch proposes to spend $1.1 billion in 1981 for the operation of the Congress, the General Accounting Office, the Library of Congress, and other programs. Executive direction and management—Outlays for the White House, the Executive Office of the President, and related activities are expected to be $109 million in 1981. GENERAL GOVERNMENT 297 NATIONAL NEED: GENERAL GOVERNMENT (Functional code 800; in millions of dollars) Major missions and programs BUDGET AUTHORITY Legislative functions Executive direction and management Central fiscal operations: Collection of taxes Other fiscal operations Subtotal, central fiscal operations General property and records management: Real property Personal property Records management Other Subtotal, general property and records management Central personnel management Other general government: Territories: Existing law Proposed legislation Indian affairs Treasury claims Other Subtotal, other general government.... Deductions for offsetting receipts Total, budget authority 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 925 1,086 1,065 1,106 1,099 84 103 112 112 115 2,145 286 2,298 354 2,385 387 2,446 431 2,506 457 2,431 2,652 2,772 2,877 2,963 21 163 78 125 157 90 168 158 87 175 160 88 190 163 90 180 386 414 420 438 433 133 150 156 159 162 183 210 132 198 43 205 296 —53 161 22 203 152 15 166 22 134 152 230 180 22 9 152 49 * 556 658 553 705 412 -120 -157 -132 -134 -135 4,395 4,906 4,946 5,262 5,048 • 500 thousand or less. Special emphasis continues to be given to the President's antiinflation program, which consists of voluntary wage and price guidelines that are designed to lower the rate of inflation without disrupting the economy. The Council on Wage and Price Stability will continue to monitor wage and price developments and will make recommendations to increase productivity and reduce inflation. Recently the President established his Commission on the Agenda for the Eighties. The Commission, which will remain at work into 1981, is charged with examining the problems, opportunities, and challenges that the Nation must face in the 1980's, as well as the fundamental social and economic questions that will be confronted. THE BUDGET FOR FISCAL YEAR 1981 298 NATIONAL NEED: GENERAL GOVERNMENT—Continued (Fictional code 800; in millions of dollars) Major missions and programs OUTLAYS Legislative functions Executive direction and management Central fiscal operations: Collection of taxes Other fiscal operations Subtotal, central fiscal operations General property and records management: Real property..... Personal property Records management Other Subtotal, general property and records management Central personnel management Other general government: Territories: Existing law Proposed legislation Indian affairs Treasury claims... Other Subtotal, other general government.... Deductions for offsetting receipts Total, outlays MEMORANDUM—Attribution of Federal Financing Bank outlays General property and records management Territories 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 914 1,088 1,081 1,111 1,088 81 103 109 109 112 2,079 252 2,296 365 2,378 392 2,436 425 2,496 447 2,330 2,661 2,770 2,861 2,943 -70 129 75 101 -110 163 90 166 -10 163 87 174 40 160 88 191 30 163 90 178 235 309 414 479 460 127 156 158 158 161 200 185 135 240 12 216 323 3 178 22 210 152 -30 188 22 132 152 44 202 22 7 152 45 586 727 531 538 428 -120 -157 -132 -134 -135 4,153 4,885 4,931 5,123 5,057 90* 43 9 98 -38 -14 -2 -18 -10 *500 thousand or less. Central fiscal operations.—The mission of central fiscal operations is to collect taxes and carry out certain other financial operations of the Federal Government. Outlays for central fiscal operations are estimated to increase by $109 million to $2.8 billion in 1981. Most of the funds supporting this mission are spent on the collection of taxes by the Internal Revenue Service (IRS). This budget includes a substantial increase in IRS collections staff and includes proposals to make the collection of taxes more efficient and to improve Federal cash management. GENERAL GOVERNMENT 299 IRS plans to continue programs to improve compliance and assure that all taxpayers pay their fair share of the tax burden. These programs include: • matching information documents, such as W-2 forms and interest and dividend statements, with individual income tax returns, and resolving discrepancies between the information documents and tax returns; • developing a predictive model to improve detection of people who do not file returns; • improving IRS use of data from financial institutions on currency transactions that exceed $10,000, and monitoring barter transactions to ensure they are reported; and • exploring the feasibility of gathering information on interest derived from investment in certain money market and other debt instruments. The collection of tax receipts will be accelerated by requiring that payments be made closer to the time the tax liability occurs. Widespread noncompliance by independent contractors would be mitigated through proposed legislation mandating a 10% withholding for certain compensation. At the same time, efforts will be made to reduce the filing burden on small employers. These cash management initiatives, which are discussed in more detail in Part 4, will increase receipts by an estimated $4.5 billion in 1981. The revenue gain is expected to total $12.2 billion for 1981, 1982, and 1983. General property and records management—The General Services Administration (GSA) manages Federal real property, acts as a central procurement agent, and is the custodian of the Federal Government's historical records. Real property.—This budget will permit the acquisition of 7.6 million square feet of office space and should satisfy the remaining high priority leasing needs of Federal agencies. The procurement of additional court facilities, required by enactment of the Omnibus Judgeship Act, will continue at an accelerated pace during 1981. Personal property.—GSA is improving its procurement procedures through increased training and certification of procurement officers, centralization of procurement functions, identification of commodity managers, and expanded audit review. The agency is also taking steps to improve the administration of contracts and to eliminate fraud and abuse. It has begun an examination of the viability and efficiency of individual motor pools and the timing of vehicle replacement. 300 THE BUDGET FOR FISCAL YEAR 1981 Records management— GSA stores Federal records, provides archival reference services, and preserves Federal historical records. A 1980 supplemental request for $3 million is being made to speed up the transfer of irreplaceable historical records from nitrate based film to safety film. Central personnel management—In 1978, comprehensive reforms of the Federal civil service system were enacted into law. The objectives were to (1) make Federal Government more efficient and responsive through a fundamental change in the management of Federal personnel, (2) improve administration of the Federal laborrelations program, and (3) safeguard merit systems against political and other abuses. The 1980 budget reflected the major organizational changes in central personnel management that resulted from the reforms. The personnel management tasks previously performed by the Civil Service Commission became the responsibility of the Office of Personnel Management. Merit system review, investigation of reprisals against "whistle blowers," and employee appeals adjudication are now performed by the Merit Systems Protection Board. In 1981 resources will be focused on carrying out and evaluating these reforms. Special emphasis will be placed on research, executive development, and improvement of productivity. Other general government—Other activities included in the general government function include payments of claims and judgments against the Federal Government, and funding for the Territories, Indian Affairs, and various commissions. Outlays are expected to decline from $727 million in 1980 to $531 million in 1981 largely because of abnormally high claims and judgments against the Federal Government in 1980. Most of these payments are for Indian land claim settlements. Territories.—Outlays for governmental operations, construction projects, and Federal oversight in the Trust Territory of the Pacific Islands and the U.S. territories of Guam, American Samoa, the Virgin Islands and the Northern Marianas are estimated to be $200 million in 1981, an increase of $15 million from 1980. To provide incentives for increased territorial funding of local programs and projects, the budget proposes (1) a 50% Federal matching of territorial tax increases, and (2) 90%/10% Federal/territorial cost sharing for capital projects funded by the Department of Interior. In the past these projects were generally 100% federally financed. Also, budget authority of $18 million in 1981 is recommended to complete a major, 5-year construction program underway in the Trust Territory that will supply these Pacific Islands GENERAL GOVERNMENT 301 with a basic infrastructure of roads, docks, harbors, airports, and water, sewer, and electrical systems. These programs are directly funded by the Department of the Interior's Office of Territorial Affairs. The territories receive grants and payments from other Federal agencies that are discussed elsewhere in the budget. CREDIT PROGRAMS—GENERAL GOVERNMENT (In millions of dollars) Program Loans to U.S. territories and other Direct loans: New loans Repayments, sales and adjustments ( - ) Net loan outlays Loan guarantees: New loans Net loan guarantees 1979 actual 1980 estimate 1981 estimate - 3 2 - 2 - 3 1 10 9 1 - 2 - 3 8 * 500 thousand or less. Indian affairs.—The budget includes outlays of $216 million in 1980 and $210 million in 1981 for Indian affairs, most of which are annual payments to settle land claims in Alaska, and to pay Alaskan Natives mineral, oil, and gas royalties under the provisions of the Alaskan Native Claims Settlement Act of 1971. The 1981 land claim settlement payment to Alaska Natives is the last payment authorized by Section 6(a)(1) of the Act. The outlay decrease in 1981 for Indian Affairs stems from the elimination of special, onetime payments of $12 million made in 1980 to eastern Indians for land claim settlements. Partially offsetting the decrease are anticipated outlay increases for royalties paid to Alaskan Natives due to increased oil production flowing through the Trans-Alaska Pipeline. Funding for the work of the Navajo-Hopi Relocation Commission is proposed to remain constant. 302 THE BUDGET FOR FISCAL YEAR 1981 GENERAL PURPOSE FISCAL ASSISTANCE National Needs Statement: • Strengthen the Federal system by financial assistance to State and local governments. • Enhance the capacities of State and local governments to finance essential public services, and cushion the fiscal impact of adverse economic conditions. • Assist States and localities by providing monies in lieu of taxes on certain Federal lands. General purpose fiscal assistance is financial aid to State and local governments without major restrictions or matching requirements. Recipients may use such aid to offset increasing costs, maintain service levels that would otherwise have been reduced, increase services, retire debt, or lower taxes. Its purpose is to reduce the inequalities in the ability of the various State and local governments to provide public services from the fiscal resources available to them. It is also a means of providing fiscal aid to those governments most in need, including those most affected by adverse economic conditions. The largest general purpose fiscal assistance program is general revenue sharing, the current authorization for which expires at the end of 1980. General revenue sharing (GRS)— Under existing legislation, general revenue sharing will provide $6.9 billion to States and local governments in 1980. One-third will be allocated to States and twothirds to nearly 39,000 local governments around the country. The program was conceived as a means of: • reducing red tape and increasing State and local control over the expenditure of Federal aid; • raising funds from the relatively more productive and more equitable Federal tax system; and • redistributing funds to reduce disparities in State and local fiscal capacities. Since the inception of general revenue sharing in 1972, intergovernmental fiscal conditions have changed. The revenue generating ability of State and local tax systems, in the aggregate, has grown rapidly. In addition, State and local tax systems have become less regressive. Despite these improvements, general purpose fiscal assistance remains necessary to provide aid to jurisdictions less able to meet GENERAL PURPOSE FISCAL ASSISTANCE 303 NATIONAL NEED: FISCAL ASSISTANCE TO STATE AND LOCAL GOVERNMENTS (functional code 850; in millions of dollars) Major missions and programs BUDGET AUTHORITY General revenue sharing: General revenue sharing payments to States and localities Administration Subtotal, general revenue sharing 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 6,855 7 6,855 6 6,855 7 6,855 7 6,855 7 6,862 6,861 6,862 6,862 6,862 375 1,000 1,000 525 293 341 501 484 449 1 1 1 1 1 Other general purpose fiscal assistance: Countercyclical and targeted fiscal assistance (proposed) Payments and loans to the District of Columbia New York City loan guarantees (administrative expenses) Payments to States from Forest Service receipts Payments to States and counties from Federal land management activities Payments to territories and Puerto Rico Other 241 279 320 331 376 412 471 5 481 394 5 555 362 5 631 364 2 692 366 2 Subtotal, other general purpose fiscal assistance 1,422 1,876 2,745 2,813 2,411 9,273 8,285 8,737 9,606 9,674 6,848 7 6,863 6 6,857 8 6,855 7 6,855 7 6,854 6,869 6,864 6,862 6,862 250 1,000 1,000 525 393 381 510 484 449 1 1 1 1 1 241 279 320 331 376 413 464 7 481 402 7 555 362 5 632 364 2 693 366 2 Subtotal, other general purpose fiscal assistance 1,518 1,801 2,753 2,813 2,412 Total, outlays 8,372 8,670 9,617 9,675 9,274 Total, budget authority OUTLAYS General revenue sharing: General revenue sharing payments to States and localities... Administration Subtotal, general revenue sharing Other general purpose fiscal assistance: Countercyclical and targeted fiscal assistance (proposed) Payments and loans to the District of Columbia New York City loan guarantees (administrative expenses) Payments to States from Forest Service receipts Payments to States and counties from Federal land management activities Payments to territories and Puerto Rico Other their service obligations. Disparities in the revenue-raising capacity of States and localities are substantial enough to warrant continued Federal efforts to redistribute resources. In addition, general 304 THE BUDGET FOR FISCAL YEAR 1981 purpose fiscal assistance is needed to ease the fiscal problems of localities facing decline, particularly during periods of national economic downturn. The administration is proposing a 5-year reauthorization of general revenue sharing at 1980 levels. No changes are proposed in the allocation formula to States or the proportion of payments to State governments. Limited modifications in the allocation formula for aid to local governments are proposed to increase the share of payments to communities less able to pay for essential services from available resources. The existing disparities in the fiscal capacities of both State and local governments are, in part, determined by legislation enacted at the State level. It is the States that bear the ultimate responsibility for improving and strengthening the fiscal condition of both States and localities. Their failure to do so, at least in some instances, could unfairly burden the residents of distressed communities or could risk transforming these governments into permanent dependents of the Federal Government. To address this problem and to strengthen the fiscal partnership among all levels of government, revenue sharing payments to the States would be contingent upon their cooperation in a participatory process designed to identify and promote necessary changes to achieve a balancing of fiscal resources and service responsibilities among the governments of each State. To commence this process, each State would establish a broadly-based independent commission to assess disparities in access to fiscal resources of the governments within the State, to identify major problems, and to make appropriate recommendations for change. The commissions would also assess the fiscal management practices and make recommendations for improvements. States would be expected to act on these recommendations. Other general purpose fiscal assistance.—These programs also provide funds with minimal restrictions to States and localities. Total outlays are estimated to increase from $1.7 billion in 1980 to $3.0 billion in 1981, largely because of the proposed countercyclical fiscal assistance program. Countercyclical and targeted fiscal assistance.—The administration is working with the Congress to develop an acceptable countercyclical fiscal assistance program. The Senate has passed a bill very similar to the administration bill and the House is preparing to vote on an alternative proposal that was developed in consulta- GENERAL PURPOSE FISCAL ASSISTANCE 305 tion with the administration. The estimates reflected in the budget are based on the administration proposal, which would trigger countercyclical payments when the national unemployment rate reaches 6V2%. In addition to countercyclical assistance, the administration continues to support legislation authorizing highly targeted fiscal assistance for 1980. This 1-year program would provide general purpose fiscal assistance to localities with high levels of unemployment and low economic growth. Payments to localities under this program would be offset by payments that might be made under the countercyclical fiscal assistance program. Outlays under targeted and countercyclical fiscal assistance are estimated to be $250 million in 1980 and $1.0 billion in 1981. Payments and loans to the District of Columbia.—The District of Columbia's operating budget is financed in part by annual payments from the Federal Government in recognition of the costs to the local government of the Federal establishment. The administration is requesting $361 million in budget authority for the Federal payment in 1981 and a supplemental of $52 million in 1980. Included in the request is $8 million for reimbursement of water and sewer charges in 1981, and $52 million in both 1980 and 1981 to pay the initial Federal contributions to the retirement funds for the District's police officers, firefighters, teachers, and judges under pension reform legislation enacted in 1979 with the support of the administration. The 1981 request for the Federal payment was for the first time determined by use of a formula. The formula, proposed by the District of Columbia and modified by the administration, will be submitted for the Congress' consideration in proposed legislation. It is intended to make the determination of the size of the Federal payment more equitable and more predictable. The District of Columbia Self-Government and Governmental Reorganization Act of 1973 (the "Home Rule Act") authorized the city to issue short term notes on its own behalf. Accordingly, interest-free cash advances from the U.S. Treasury to the District will no longer be made after 1980. The 1981 estimates anticipate that the city will exercise its authority to borrow in the private market for short-term, cash management purposes. For long-term funding purposes, the 1981 budget requests budget authority of $166 million for Federal loans to fund capital improvements in the District. After 1981, it is expected that the District will have developed the capability to finance long-term bonding in the private market. 310-000 0 - 80 - 21 306 THE BUDGET FOR FISCAL YEAR 1981 Outlays for the District of Columbia are estimated to rise from $381 million in 1980 to $510 million in 1981 due to a requested increase in the Federal payment, an increase in loans for capital improvements, and a decrease in receipts. New York City loan guarantees.— Under the New York City Loan Guarantee Act of 1978, the Secretary of the Treasury is authorized to guarantee up to $1,650 million of New York City obligations through June 30, 1982. During 1981, an estimated $300 million in standby guarantees will be made available. These guarantees are contingent upon a number of conditions, including the required holding of the obligations by City or State employee pension funds, the balancing of the City's budget by the fiscal year ending June 30, 1982, and the City's payment of an annual guarantee fee of 0.5% to the Treasury. The loan guarantees are not included in the budget totals, but the related administrative costs are reflected. Other payments.—Some jurisdictions receive payments from the Federal Government based on a percentage of receipts generated from the sale of timber, mineral leases, grazing permits, and other activities on Federal property and lands. Payments are also provided to local governments in lieu of taxes for certain Federal lands contained within their jurisdictions. The Departments of Interior and Agriculture will return an estimated $760 million in 1980 and $875 million in 1981 to State and local jurisdictions. In addition, Federal taxes and other revenues generated or collected in Guam, the Virgin Islands, and Puerto Rico by various Federal agencies are returned to these territories for their fiscal support. Tax expenditures. —Major tax expenditures also provide fiscal assistance to States and localities. Interest income from most State and local government securities is not subject to Federal income tax. This exclusion allows these governments to borrow at lower interest rates. The cost of this tax expenditure for general purpose State and local debt alone is estimated at $6.5 billion in 1981. In addition, the deductibility of State and local taxes from gross income allows individuals who itemize deductions to offset some of their State and local taxes through reduced Federal taxes. This revenue loss is estimated to be $17.3 billion in 1981. Corporations may also take a tax credit for income earned from doing business in United States possessions. This tax expenditure will produce an estimated revenue loss in 1981 of $0.9 billion. Related programs.—In addition to general purpose fiscal assistance, the Federal Government supports States and localities GENERAL PURPOSE FISCAL ASSISTANCE 307 CREDIT PROGRAMS—GENERAL PURPOSE FISCAL ASSISTANCE (In millions of dollars) 1979 actual Program Guarantees of New York City loans: Loan guarantees: New loans Net loan guarantees 1980 estimate 500 500 Loans to the District of Columbia: Direct loans: New loans Repayments, sales and adjustments { - ) Net loan outlays 1981 estimate 250 226 -47 141 -22 185 -105 174 -26 118 81 148 Loan guarantees: Net loan guarantees - 2 0 through a large variety of Federal grant-in-aid programs. These programs, which range from relatively narrow categorical programs to block grant programs, are designed to meet other national needs and to serve other major missions. Therefore they are not included as general purpose fiscal assistance, although they do provide, when taken together, a far larger source of State and local revenues. Total grants-in-aid directly paid to States and localities are estimated to rise from $88.9 billion in 1980 to $96.3 billion in 1981. FEDERAL GRANT-IN-AID OUTLAYS BY FUNCTION (In millions of dollars) Function National defense Energy Natural resources and environment Agriculture Commerce and housing credit Transportation Community and regional development Education, training, employment, and social services Health Income security Veterans benefits and services Administration of justice General government General purpose fiscal assistance 1 Total outlays 1 1979 actual 1980 estimate 94 183 4,630 456 12 10,438 6,641 22,249 14,377 14,740 86 517 202 8,233 77 472 4,821 509 7 11,513 5,786 21,865 16,209 18,364 86 473 194 8,569 57 660 4,957 512 4 12,260 6,318 23,195 17,817 20,298 82 491 214 9,446 82,858 88,945 96,312 These numbers differ slightly from total outlays for this function, because they exclude administrative expenses. 1981 estimate 308 THE BUDGET FOR FISCAL YEAR 1981 INTEREST Interest is the cost of borrowing or the income from lending money. The interest function includes both interest paid and interest received by the Federal Government. In 1980 and 1981, interest outlays are projected to grow substantially, rising by $10.8 billion and $3.9 billion, respectively. By 1981, outlays for the interest function are projected to be $67.2 billion. INTEREST (Functional code 900; in millions of dollars) Programs BUDGET AUTHORITY Interest on the public debt1 Other interest: Interest on refunds of tax collections Interest on loans to the Federal Financing Bank Other Subtotal, other interest Total, budget authority OUTLAYS Interest on the public debt1 Other interest: Interest on refunds of tax collections Interest on loans to the Federal Financing Bank Other Subtotal, other interest Total, outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 59,837 73,300 79,400 82,000 83,600 358 698 708 600 610 -4,015 -3,626 -6,085 -4,584 -8,041 -4,870 -9,754 -4,862 -10,960 -4,907 —7,283 -9,971 -12,203 -14,016 -15,258 52,554 63,329 67,197 67,984 68,342 59,837 73,300 79,400 82,000 83,600 358 698 708 600 610 -4,015 -3,624 -6,085 —4,583 -8,041 -4,870 -9,754 -4,862 -10,960 -4,907 -7,281 -9,970 -12,203 -14,016 -15,258 52,556 63,330 67,197 67,984 68,342 • Includes interest paid on the public debt held by Government investment accounts. Interest on the public debt—'This subfunction includes all interest paid on the public debt. The public debt consists of Treasury securities sold to the public and to trust and revolving funds within the Federal Government. Estimates of interest on the public debt are highly sensitive to assumptions about interest rates. For purposes of developing budget estimates, interest rates are assumed—by convention—to fall as inflation declines. Under this convention, which is not meant to be a forecast, it is assumed that the 91-day bill rate will decline gradually from about 12%, the prevailing rate when the estimates were made, to an average of 10.5% in calendar year 1980 and 9.0% in calendar year 1981. INTEREST 309 Interest on the public debt is estimated to grow substantially in 1980. Much of this rise is due to an increase in average interest rates on Treasury securities resulting from the sharp rise in market interest rates in the fall of last year. Interest is projected to grow at a much slower rate in 1981 and 1982 due to smaller increases in debt outstanding and to assumed declines in interest rates. Other interest—This subfunction includes interest payments on tax refunds and interest collections from Federal agencies and the public. The largest item is collections from the off-budget Federal Financing Bank (FFB). In recent years, this off-budget Federal entity has become the major source of funds for many Government programs. The FFB borrows directly from the Treasury and uses those funds to purchase debt and financial assets guaranteed by various Government programs. It then pays interest to the Treasury on this borrowing. A more detailed discussion of the FFB and its operations is contained in Part 6 of this document. Part 6 also discusses borrowing by the Federal Government. Additional information on borrowing is contained in Special Analysis E, "Borrowing, Debt, and Investment," in the Special Analyses volume of the Budget. Net interest—A substantial portion of interest outlays is paid to Federal trust funds on securities held by these funds. Since the payment of interest is not made to the public but, rather, consists of offsetting transactions within the budget itself, these amounts are deducted from both budget authority and outlays before arriving at budget totals. As shown in the following table, net interest outlays—the interest function minus the interest received by trust funds—are projected to be $54.2 billion in 1981. In addition, Federal Reserve Banks hold Government securities as part of their monetary function. The Federal Reserve Banks return most of the interest they receive on these securities back to the Treasury as miscellaneous budget receipts. This deposit of earnings is projected to be $10.9 billion in 1981. Deducting these receipts from net interest results in a net impact on the budget of $43.4 billion in 1981. The net impact of interest is the amount of interest that must be paid from receipts or additional borrowing to meet Federal financing requirements. A tax expenditure arises from the optional deferral of interest income on U.S. savings bonds. Interest is normally taxed each year as it is credited, but the holder of savings bonds may defer paying the tax until the bond is redeemed. The revenue loss from this tax expenditure is estimated to be $250 million in 1981. 310 THE BUDGET FOR FISCAL YEAR 1981 NET INTEREST (In millions of dollars) 1979 actual Outlays for the interest function Interest received by trust funds Net interest outlays Deposit of earnings by the Federal Reserve System1 Net impact 2 1 1 1980 estimate 1982 estimate 1983 estimate 52,556 -9,950 63,330 -11,539 67,197 -12,958 67,984 -14,094 68,342 -15,369 42,606 51,791 54,239 53,890 52,973 -8,327 -10,058 -10,876 — 11,751 -12,936 34,279 41,733 43,363 42,139 40,037 Shown as budget receipts. Net amount of interest to be paid from receipts, borrowing, or other means of financing. 1981 estimate ALLOWANCES 311 ALLOWANCES Allowances are included in the 1981 budget to cover increases in compensation for Federal civilian agency employees, future initiatives, and unforeseen requirements that may arise. Pay allowances for the Department of Defense are included in the national defense function. ALLOWANCES {Functional code 920; in millions of dollars) Program BUDGET AUTHORITY Civilian agency pay raise Contingencies for Relatively uncontrollable programs National health plan Other requirements 1 Total, budget authority OUTLAYS Civilian agency pay raises Contingencies for Relatively uncontrollable programs National health plan Other requirements1 Total, outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 1,115 3,340 5,447 150 2,000 7,900 24,100 8,500 150 3,115 11,240 38,047 1,070 3,251 5,318 100 1,500 6,500 24,100 7,100 100 2,570 9,751 36,518 ' Includes welfare reform. The administration has proposed comprehensive legislation to reform and improve Federal pay-setting procedures. The legislative proposal would broaden the principle of comparability and make certain structural changes to bring Federal compensation rates and practices more closely into line with those of the private and nonFederal governmental sectors. Both pay and benefits—rather than just pay—would be used to determine comparability. Compensation scales would be based on State and local government pay and benefits, as well as those for private industry. The Federal wage system for the blue collar workforce would be changed to improve comparability with prevailing local rates. Consistent with the one-time adjustment required by the legislative proposal discussed above, allowances are included in the 1981 budget to cover an overall increase in pay of 6.2% for while collar and blue collar employees. A final decision on the level of the October 1980 pay increase will be made in the late summer after Presidential review of the recommendations of the President's Compensation Agent, the Federal Employees Compensation Council, and the Advisory Committee on Federal Compensation, and after a review of economic conditions at that time. 312 THE BUDGET FOR FISCAL YEAR 1981 The contingency allowance for relatively uncontrollable programs is assumed to be zero since outlays higher or lower than the budget estimates are assumed to be equally probable. A separate allowance is included for the national health plan, which is proposed to start in 1983. The $24.1 billion allowance reflects the effect on the surplus or deficit. While most of the costs associated with the national health plan will show up on the outlay side of the budget, the proposal will also affect budget receipts. The health plan is discussed in the health function and in the presentation entitled "Improving the Nation's Health" in Section II of the Special Analyses volume of the Budget. The contingency allowance for other requirements does not represent a compilation of a specific list of future needs, but is a rough estimate taking into account past experience of unanticipated requirements and possible future initiatives. Among the items covered by this contingency allowance are the costs associated with the welfare reform proposal, discussed in the income security function and the education, training, employment and social services function. UNDISTRIBUTED OFFSETTING RECEIPTS 313 UNDISTRIBUTED OFFSETTING RECEIPTS Offsetting receipts (which are shown in detail in table 11 in Part 9 of the Budget) are generally deducted from outlays and budget authority at the function, subfunction, or agency level. In three instances, however, such payments are deducted from the budget totals as undistributed offsetting receipts. Payments for rents and royalties on the Outer Continental Shelf are extremely large and their inclusion in a particular function would distort the view of Federal program costs. Deductions for interest received by trust funds and for the payments that each agency makes as its share of employee retirement costs are included as part of this category to eliminate double counting of budget authority and outlays in order to reflect properly transactions with the public. UNDISTRIBUTED OFFSETTING RECEIPTS (Functional code 950; in millions of dollars) Offsetting Receipts BUDGET AUTHORITY AND OUTLAYS Employer share, employee retirement Interest received by trust funds: Existing law Proposed legislation Subtotal, interest received by trust funds Rents and royalties on the Outer Continental Shelf Total 1980 estimate 1981 estimate 1982 estimate 1983 estimate -5,271 -5,919 —6,161 -6,354 -6,517 -9,950 -11,539 -12,427 -531 -13,429 -665 -14,489 -880 -9,950 -11,539 -12,958 -14,094 -15,369 1979 actual -3,267 -4,800 -6,000 -6,000 -6,000 -18,488 -22,258 -25,119 -26,449 -27,886 Employer share» employee retirement—The payments by Federal agencies to various employee retirement funds are reflected as outlays of the agencies and as receipts of the respective retirement funds. Over 70% of these payments are to the civil service retirement fund. Most of the balance is paid to the social security trust funds. Interest received by trust funds.—By law, most trust fund balances are invested in interest-bearing Federal securities. The interest outlays are included in interest on the public debt. The receipts collected by various trust funds are shown as undistributed offsetting receipts. Almost half of these interest collections are received by the civil service retirement and disability fund, and almost onethird are received by social security and medicare. Several proposals in the budget reduce estimated trust fund outlays. These outlay reductions increase trust fund balances and thereby increase trust fund investments in Treasury securities. The higher interest earn 314 THE BUDGET FOR FISCAL YEAR 1981 ings on these investments are included in the estimates of interest received by trust funds. Rents and royalties from the Outer Continental Shelf (OCS).— These estimates include cash bonuses received from the leasing of new OCS lands that have the promise of containing oil and gas. Annual rents on existing leases and royalties based on a percentage of the value of production are also included. The current estimates assume that four OCS sales will be conducted in 1980 and seven sales in 1981. Six sales are currently scheduled for 1982. No final decision will be made on any of these sales until environmental studies and other requirements under the National Environmental Policy Act have been completed. PART 6 PERSPECTIVES ON THE BUDGET PERSPECTIVES ON THE BUDGET This part of the budget explains several topics that help place the budget in perspective: • the relationship of budget authority to outlays; • alternate budget proposals that would balance the budget in 1981; • fiscal activities outside the Federal budget: —outlays of off-budget Federal entities, -Government-sponsored enterprises, and —tax expenditures; • Federal debt and the relationship of budget funds to changes in Federal debt; • the difference between the initial budget estimate of outlays and the actual outlays of relatively uncontrollable programs for the last completed fiscal year; and • the difference between the initial budget estimate of receipts and the actual receipts for the last completed fiscal year. RELATIONSHIP OF BUDGET AUTHORITY TO OUTLAYS The Congress must provide budget authority, generally in the form of appropriations, before Federal agencies can obligate the Government to make outlays. For 1981, $696.1 billion of new budget authority is proposed for those Federal agencies included in the budget. In addition, $24.2 billion in new budget authority is proposed for those Federal entities that are excluded from the budget.1 Of the total new budget authority proposed for budget agencies in 1981, $432.9 billion will require congressional action. New budget authority of $351.8 billion will be available through permanent authorizations under existing law. This consists mainly of trust fund receipts, which in most trust fund programs are automatically appropriated under existing law, and interest on the public debt, for which budget authority is automatically provided under a permanent appropriation enacted in 1847. Offsetting the gross new budget authority is $88.6 billion of deductions for offsetting receipts, which comprise transactions within the Government and proprietary income from the public. Almost all of the budget authority for off-budget Federal entities will be available under existing law. ' Budget authority is discussed further in Part 7 of this volume. 316 PERSPECTIVES ON THE BUDGET 317 BUDGET AUTHORITY (In billions of dollars) Description Available through current action by the Congress: Enacted and pending appropriations Proposed in this budget: 1 Appropriations Supplemental requests Rescission proposals To be requested separately: Upon enactment of proposed legislation.. . Allowances: Civilian agencies 2 Department of Defense—Military 3 Subtotal, available through current action by the Congress Available without current action by the Congress (permanent authorizations): 4 Trust funds (existing law) interest on the public debt Other Subtotal, available without current action by the Congress Deductions for offsetting receipts Total, budget authority 1979 actual 1981 estimate 1980 estimate 360.1 1982 estimate 1983 estimate 378.5 416.7 443.2 475.9 22.0 10.9 14.0 16.9 .2 3.1 2.1 12.0 8.1 38.8 12.5 360.1 416.0 432.9 477.3 544.3 190.1 59.8 14.6 225.8 73.3 19.2 255.5 79.4 16.9 289.3 82.0 24.1 320.8 83.6 22.1 264.6 318.3 351.8 395.4 426.5 -68.0 -80.2 —88.6 -97.6 -102.4 556.7 654.0 696.1 775.1 868.5 15.4 -.1 MEMORANDUM Budget authority for off-budget Federal entities: Available through current action by the Congress Available without current action by the Congress 16.3 Total, off-budget Federal entities 16.3 573.1 Total, budget authority including offbudget Federal entities * * 22.2 * * * 24.1 22.4 24.1 22.2 24.2 22.4 24.1 676.2 720.2 797.5 892.5 * $50 million or less. 1 Amounts for 1982 and 1983 are tentative planning targets. * Includes allowances for civilian agency pay raises, contingencies, youth initiative (beginning in 1982), and national health insurance (beginning in 1983). 1 Includes allowances for civilian and military pay raises for Department of Defense. 4 Allowances for relatively uncontrollable programs with permanent authorizations are estimated at zero. Not all of the new budget authority for 1981 will be obligated or spent in that year.2 • Budget authority for most trust funds arises from the authority of these funds to spend their receipts from special taxes and contributions and from Federal fund payments made to 2 This subject is discussed more fully in a separate report, "Balances of Budget Authority," that is published by the Office of Management and Budget shortly after the budget is transmitted. 318 THE BUDGET FOR FISCAL YEAR 1981 these funds. Any balances of these receipts remain available to these trust funds indefinitely to finance benefits and other purposes specified by law. • Under longstanding budget policy, budget authority for most major construction and procurement projects covers the entire cost estimated when the projects are initiated, even though costs will be incurred and outlays made over a period extending beyond the fiscal year in which the budget authority is enacted. In the past, an exception to this policy has been made for water resource programs. The administration policy continues to be that funds for new water resource projects should cover the entire costs of the projects. No new water resource projects are proposed in this budget, but some will be proposed later after the independent review of projects by the Water Resources Council has been authorized by Congress. • Government enterprises are occasionally given budget authority for general capital purposes that will be used over a period of years. • Budget authority for the subsidized housing programs is equal to the Government's estimated maximum contractual obligation to pay subsidies under contracts, which may extend over periods of up to 40 years. • Budget authority for long-term contracts covers the estimated maximum obligation of the Government. For example, budget authority for many direct loan programs provides financing for a number of years; budget authority for many insurance and loan guarantee programs consists of amounts to be used only in the event of defaults or other claims made upon the programs. As a result of these factors, a substantial amount of budget authority carries over from one year to the next. Most of this is earmarked for specific uses and is not available for new programs; a small part may never be obligated or spent, because it is primarily for contingencies that do not occur or reserves that do not have to be used. As shown in the chart on the next page, $143.3 billion of the outlays in 1981, 23% of the total, will be made from budget authority enacted in previous years. At the same time, $223.6 billion of the new budget authority proposed for 1981, which is 32% of the total amount proposed, will not lead to outlays until future years. The relationship between budget authority, obligations, and outlays is discussed further in Part 7 of the Budget and displayed in table 5 of Part 9. PERSPECTIVES ON THE BUDGET 319 Relation of Budget Authority to Outlays—1981 Budget * Billions ^ Unspent Authority ^ Enacted in ^ Prior Years To be spent in Future Yean 775.3 623.1 Unspent Authority (or Outlays in Future Years 846.8 Once budget authority is provided, the Congressional Budget and Impoundment Control Act requires that any available amounts withheld from use (without specific congressional authorization) must be reported to the Congress in rescission or deferral messages. The Congress may require these funds to be released by overturning the proposed deferral of budget authority or by not taking action on the proposed rescission. ALTERNATE BUDGET PROPOSALS In April 1979, the Congress enacted a new temporary limit on the Federal debt (Public Law 96-5). Included in the Act was a provision that "If a budget which is transmitted by the President to the Congress . . . would, if adopted, result in a deficit in Fiscal year 1981 or in fiscal year 1982, the President shall also transmit alternate budget proposals which, if adopted, would not result in a deficit." This section outlines such alternative budget proposals, describes the difference between the budget and alternate budget proposals, and explains why the budget proposed by the President is clearly preferable to these alternatives. This discussion emphasizes, as it must, tax and spending proposals alternative to those in the 1981 budget. No alternative budget policy, however, can be considered independently of economic conditions. This is particularly true for this budget. 320 THE BUDGET FOR FISCAL YEAR 1981 The 1981 budget proposed by the President includes a deficit of $15.8 billion, which is 60% lower than the deficit currently estimated for 1980. But, at the same time, this budget projects a mild economic downturn during calendar year 1980: a projection which has a considerable effect on the 1980 and 1981 budget deficits. In fact, as discussed in Part 2, if the economy were to perform strongly enough to keep the unemployment rate at its current level, the 1981 budget would be in surplus. This budget thus embodies prudent and responsible spending proposals, and a fiscal policy appropriate to our economic circumstances. An alternative, more restrictive fiscal policy would result in a deeper and more prolonged economic downturn. As noted in Part 2, this budget is the third to be prepared using the zero-base budget review process. This process has allowed the administration to establish priorities that make the best use of the taxpayers* dollars. Reduction and cost saving proposals have been recommended where possible and emphasis has been placed on increasing the efficiency of existing programs. To balance the budget in 1981, either taxes would have to be increased or Federal spending reduced below the restrained levels proposed in this budget, or a combination of both actions would be required. Increased taxes or decreased Federal spending would have secondary effects on the economy and therefore on other Federal programs. They would reduce real economic growth and employment and thereby reduce tax receipts and raise unemployment-sensitive spending. Consequently, tax increases or spending cuts in excess of $15.8 billion, the size of the deficit now estimated, would be needed to balance the budget. For purposes of this discussion, it has been estimated that $20 billion in tax increases or spending decreases would be required to produce a balanced budget in 1981. The undesirable effects of actions to increase taxes or to reduce spending still further in 1981 can be explained best by discussing specific alternatives. A number of alternative ways to achieve a balanced budget are possible. The alternatives considered here involve both tax and spending choices. PERSPECTIVES ON THE BUDGET 321 Tax choices— The 1981 budget could be balanced by raising taxes through a surcharge on individual and corporate income taxes. To produce sufficient receipts to balance the 1981 budget, a surcharge of about 6% would be required. Such a surcharge would not, however, be in either the short-run or the long-run interest of our Nation. In the short-run, such an income tax increase would be likely to delay and weaken recovery from the downturn that is expected during the first half of this year. Unemployment would be increased, with little beneficial effect on inflation. From the longer run perspective, it is the goal of this administration to reduce tax burdens, not to increase them. A tax increase therefore moves in exactly the opposite direction from that planned by this administration and desired by the American people. Another possible source of major tax receipts would be an increase in payroll taxes. It would be particularly inappropriate to raise payroll taxes beyond those increases already scheduled under current law. Such increases would have all of the disadvantages of increases in income taxes and, in addition, would raise business costs and thereby increase inflation. Another policy that would increase receipts would be to further increase the administration's proposed windfall profit tax. This tax strikes a balance between providing adequate incentives to increase energy production and capturing windfall gains resulting from higher world oil prices and the policy of gradual decontrol of oil prices. Increases in windfall profit taxes substantially above those proposed by the administration would adversely affect production incentives. Spending choices.—If achievement of a balanced budget irrespective of economic circumstances and national priorities were the administration's sole aim, an alternative to tax increases might be program reductions that would lead to lower spending. Obviously, such changes might be made in a variety of ways, however unacceptable. There could be a choice between a relatively few major changes or widespread, relatively small decreases. The following are a few of the larger changes that could be considered: 310-000 0 - 80 - 22 THE BUDGET FOR FISCAL YEAR 1981 322 ALTERNATE BUDGET: OUTLAY REDUCTIONS IN MAJOR PROGRAMS (In billions of dollars) 1980 Defense The amount of these reductions represents the effect on defense outlays if no real growth were planned in obligational authority through 1983. Such a reduction would be completely unacceptable because the resulting defense levels would prevent the United States from achieving its fundamental national security objectives. We would be unable to ( 1 ) maintain our strategic forces as an effective deterrent to both nuclear and conventional warfare, ( 2 ) meet NATO commitments that increase defense efforts to prevent eventual Soviet military superiority, and ( 3 ) develop the overall force structure necessary to assure our national security now and in the future. Social security, veterans compensation and pensions, civil service and military retirement, public assistance, and other programs indexed to the Consumer Price Index Under this option, inflation-related increases in retirement, veterans, and disability benefits would be limited to three-quarters of the adjustment that would otherwise be made through calendar year 1981. Such a change would be precipitous and inequitable and therefore unacceptable to this administration. -1.1 General revenue sharing General revenue sharing grants to States and localities could be terminated. Since the inception of this program in 1972, the fiscal condition of State and local governments, in the aggregate, has improved. Despite these improvements, however, general-purpose fiscal assistance is needed to redistribute aid to jurisdictions less able to meet their service obligations. Significant disparities in fiscal capacity among States and localities remain and are substantial enough to warrant continued Federal assistance. Federal pay increases Defense Civilian agencies and programs This alternative would deny Federal pay increases that are scheduled for October 1980; the estimates for 1982 and 1983 assume that this reduction would not be made up in later years. Failure to provide this increase would inordinately concentrate restraint on public servants; in the long run such a policy would make Government less effective. Energy security initiatives Low-income assistance Energy supply and conservation Transportation programs Estimates of 1981 spending would be reduced significantly if the administration did not propose its energy security program. Such an action would be irresponsible in view of the current energy shortage, the long-run nature of the Nation's energy problems, and the need to assist low-income individuals facing dramatic increases in utility costs. 1981 1982 1983 -2.2 -11.0 -20.0 -6.1 -10.3 -11.6 —5.1 _19 (-0.2) ) 01) —6.9 —6.9 —2.9 (—1.8) ( — 1.1) —3.0 (-1.8) ( 1-1) —3.0 (-1.8) ( — 1.1) _37 ( - 2.4) (-0.6) ( - 0 6 ) _52 -7.3 (—2.4) ( - 2.4) (-1.8) (-3.5) ( - 1 0 ) (-1.3) 323 PERSPECTIVES ON THE BUDGET As an alternative to making reductions exclusively in major programs, some of the reductions listed above could be chosen together with a number of detailed reductions throughout the budget. The following is one such list but it should be noted that, by itself, it yields only one-fifth of the reduction required to balance the 1981 budget. ALTERNATE BUDGET: SMALLER OUTLAY REDUCTIONS THROUGHOUT THE BUDGET (In millions of dollars) 1981 International affairs: Reductions in food aid, AID development programs, the economic support fund and contributions to the multilateral development banks. Reductions in Export-Import Bank direct loans Reductions in State Department programs Energy: Across-the-board reductions in supply and conservation programs (other than energy security programs) Delays in oil purchases for the Strategic Petroleum Reserve Agriculture: Reductions in operating support and construction funds for land grant colleges, grading and marketing services, and basic research... Natural resources: Elimination of the Agricultural conservation program One-year reduction in construction of water resources projects Reduction in planned acquisition of park areas, other recreational lands, and endangered species habitats by the Land and Water Conservation Fund Reduction in basic operations of the Forest Service Reduction in EPA municipal wastewater facilities construction grants Other reductions (Park Service operations, nonconstruction activities of the Corps of Engineers, earthquake prediction research, urban recreation grants, historic preservation, saline water research and development, operation and maintenance activities of the Water and Power Resources Service, air and water quality grant programs, and river basin surveys)... Highway trust fund: Maintenance of the 1981 program level at the same level as 1980 ($8.4 billion) Welfare reform: Cancellation of demonstration projects Public service jobs: Reduction of 25,000 jobs from planned levels 1982 1983 -439 -15 -71 -130 -90 -99 -95 -60 -89 -241 -290 -456 -228 -808 -1,097 -24 -22 -22 -63 -190 -190 -60 -30 -30 -42 -57 -57 -20 -30 -60 -147 -122 -85 -60 -240 -80 -226 -271 -34 -248 -262 -278 -100 324 THE BUDGET FOR FISCAL YEAR 1981 ALTERNATE BUDGET: SMALLER OUTLAYS REDUCTIONS THROUGHOUT THE BUDGET—Continued (In millions of dollars) 1981 Health: Elimination of funding for Public Health Service hospitals and clinics Delay of health services initiatives for 1 year Delay of benefit improvements for medicare and medicaid for 1 year Reduction in program level for drug abuse treatment services Reduction in program level for community health centers Elimination of adolescent health program Income security: Reduction of Federal housing subsidies for lowincome tenants "Freeze" in deductions from gross income permitted for food stamp eligibility and benefit level determination Continuance of current level of special supplemental food programs for women and infant children (WIC) Veterans benefits and services: No increases in medical programs and benefits, construction, and other programs Elimination of proposed 10% rate increase in Gl bill benefits LEAA block grant program: Elimination of grant assistance to State and local governments for criminal justice programs Mass transit operating assistance: Decrease in section 5 base tier formula grants below 1980 levels 1982 -168 -55 1983 -165 -40 -165 -10 -70 -75 -31 -38 -564 —21 -18 - 6 -12 -18 —414 -801 -1,297 -110 -110 -110 -46 -70 -75 -144 -146 -162 -180 -143 -115 -87 -214 -307 -50 - 5 The reductions identified above are not included in this budget. Among their more significant effects would be: • a disproportionate burden on veterans, the poor, the disadvantaged, the aged, and the mentally ill; • delays in increasing energy supply and conservation that would be in direct conflict with the urgency of finding solutions to national energy problems; • lack of an appropriate response on the part of the United States to international food and development needs; • increased costs in future years for programs and projects (such as EPA construction grants) that can be postponed but not cancelled if national needs are to be met; • abandonment of necessary efforts to preserve natural resources and to use our renewable resources; and • termination of most Federal assistance to States, cities, and counties for criminal justice programs. PERSPECTIVES ON THE BUDGET 325 Every effort has been made in the 1981 budget and in the previous budgets of this administration to eliminate unnecessary spending. Much of the savings this administration has proposed in the past has not been enacted by the Congress. In the 1980 budget, for example, the President proposed legislative actions that would have reduced 1980 outlays by $4.5 billion, including $1.7 billion for hospital cost containment. Of the total amount of savings proposed, the Congress completed action on legislation last session that reduced 1980 outlays by less than $500 million. Hospital cost containment legislation has still not been enacted, although this and a number of other savings proposals may be considered by the Congress during the current session. Prompt action on these proposals is needed. In this budget, additional savings actions have been proposed. As is noted in Part 2, substantial operating efficiencies and cost reductions have been achieved and more are proposed. Substantial additional reductions cannot be achieved without further program reductions that would unavoidably cause important national needs to go unmet. For these reasons, the administration does not recommend that the reductions listed above be made. Consideration of these alternative budget proposals is useful nonetheless because it illustrates the nature of the task that the President faces each year in his review of the budget. Indeed, he has already made a large number of difficult choices in order to arrive at the restrained 1981 budget. These alternatives are not dissimilar from those the President faces every year. Most of the budget is composed of spending for national security and for programs that must be carried out under current law. To achieve significant reductions, the President must face a series of difficult tradeoffs. Should he propose budget cuts that harm millions of people, or should he risk reductions in national security, or both? It is not likely that the Congress or the public would accept precipitous reductions in either of these areas. Yet massive cuts in the remainder of the budget, which comprises less than 25% of the total, would almost certainly create an ineffective Government unacceptable to most. The effort to restrain Government spending must be continuous and progress must occur incrementally over a period of time. Restraint cannot be accomplished by rhetorical statements or by general directions to eliminate waste, fraud, and abuse. It requires hard and unending efforts to determine the effectiveness of programs and to eliminate or change those that do not meet their objectives. Such changes must be accompanied by the difficult task of coping with the expectations and hopes of program supporters. 326 THE BUDGET FOR FISCAL YEAR 1981 The alternative approaches mentioned in this section may appear unpalatable. Indeed, all actions that would result in major budget reductions are unpalatable to someone. A President faces and makes these kinds of choices each year. This discussion of alternative proposals may increase understanding of the problems inherent in restraint and therefore help develop the support necessary to achieve more restraint in the future. FISCAL ACTIVITIES OUTSIDE THE FEDERAL BUDGET The budget does not include a number of fiscal activities of the Federal Government that result in spending similar to budget outlays. One major exclusion, the outlays of off-budget Federal entities,3 is discussed in some detail below. This is followed by a discussion of the Government-sponsored enterprises, which are outside the budget because of their private ownership.4 Taxation and tax expenditures, which also have significant effects on the economy, are discussed subsequently. The regulation of economic activity can also have economic effects similar to budget spending by requiring the private sector to make expenditures for specified purposes, such as safety and pollution control. While important, these effects cannot be quantified satisfactorily at the current time and therefore are not discussed in this section. Loan guarantees, which also allocate economic resources toward particular uses, provide credit to borrowers at more favorable terms than would otherwise be available in the private market. Beginning this year, the administration has established a set of budget-type controls on much of the Government's direct loan and loan guarantee activity. The credit control system and the estimated amounts of lending, including loan guarantees, are discussed in Parts 2 and 5 of this Budget Outlays of off-budget Federal entities— Off-budget Federal entities are federally owned and controlled, but their transactions have been excluded from the budget totals under provisions of law.5 Therefore, their fiscal activities are not reflected in either budget outlays or the budget surplus or deficit, appropriation requests for their programs are not included in the totals of budget authority for the budget, and their outlays are not subject to the ceilings set by the congressional budget resolutions. As shown in the table on page 340, the outlays of the off-budget Federal entities are added to the budget deficit to derive the total Government deficit that has to be financed by borrowing from the public or by other means. * Financial statements for these entities are published in the Appendix, Budget of the United States Government, Fiscal Year 1981. See Part IV, "Off-Budget Federal Entities." 4 For financial statements, see the Appendix, Part VI, "Government-Sponsored Enterprises." •The Board of Governors of the Federal Reserve System (but not the Federal Reserve banks, which are privately owned) is a Federal organization. It is excluded from the budget and from this discussion. PERSPECTIVES ON THE BUDGET 327 When off-budget outlays are financed by Treasury borrowing, the additional debt is subject to the statutory debt limit; when financed by the entities' own borrowing, it is not. In either case the additional debt is part of the gross Federal debt. The concept of the unified budget, currently used as a foundation for the budget of the Federal Government, was adopted beginning with the 1969 budget. It combined the administrative budget with the substantial trust fund transactions of the Federal Government. The first departure from the unified budget concept occured in August 1971, when the Export-Import Bank was excluded by statute from the budget. Further departures followed. The Postal Service fund, the Rural Telephone Bank, the lending transactions that became the Rural Electrification and Telephone revolving fund, and the Housing for the Elderly or Handicapped fund were removed from the budget. The Federal Financing Bank, the U.S. Railway Association, and the Pension Benefit Guaranty Corporation were established off-budget. The Exchange Stabilization Fund had always been outside the unified budget, although until 3 years ago it was classified as a deposit fund instead of an off-budget Federal entity.6 In the past 4 years the trend toward increasing the number of off-budget Federal entities has been reversed. The Export-Import Bank was returned to the budget by statute on October 1, 1976, and the Housing for the Elderly or Handicapped fund was returned to the budget by statute a year later. In 1978 Congress enacted legislation proposed by the administration to include in the budget the administrative expenses previously paid by the Exchange Stabilization Fund. The interest collections of the fund were put on-budget by administrative action at the same time, and in the current budget the actual profits and losses realized from foreign exchange transactions are being put on-budget.7 To the extent feasible the budget outlays and deficits of previous years have been revised to include these three entities so that the series measuring budget transactions over time would be as consistent as possible. Legislation has also brought most of the transactions of the U.S. Railway Association into the budget. Almost all of the Association's current activity is for assistance to Conrail, and since the start of this program in 1976 the purchase of Conrail securities has been included in the budget by law. * The Exchange Stabilization Fund conducts a cycle of operations similar to revolving funds. Consequently, its classification as a deposit fund was contrary to the normal definition of a deposit fund: an account that records amounts held by the Government as an agent for others or amounts held in suspense temporarily before being refunded or paid into some other fund. 1 Because it is not practicable to forecast transactions in gold, foreign currency, and foreign investments, the budget will continue the past practice of not estimating profits and losses from foreign exchange transactions for the current and future years. 328 THE BUDGET FOR FISCAL YEAR 1981 Despite the exclusion of the off-budget entities from the budget, some of the outlays related to their operations are nonetheless included in the budget totals. The budget totals include the subsidy paid to the Postal Service fund and the administrative expenses of the Rural Electrification lending programs and the U.S. Railway Association. Moreover, while the budget authority and outlays of off-budget Federal entities are excluded from the budget totals, some of their activities are subject to Presidential and congressional review. For example, limits on the amount of new lending for the rural electrification program financed by the Rural Electrification and Telephone revolving fund are set annually by law; the outstanding debt and annual borrowing of the Postal Service are limited by statute; and the budget program of the Pension Benefit Guaranty Corporation is approved in an appropriation act. As part of its energy program the administration has proposed to create an independent Energy Security Corporation outside of the budget in order to help private industry finance the development of oil substitutes. Although the Corporation is itself off-budget, its funding is to be included in the budget totals. The funds for carrying out the Corporation's activities are proposed to come from direct appropriations to the Treasury. The Treasury will make direct loans to the Corporation,8 and the Treasury outlays for this purpose will be included in the budget totals. These budget outlays will at the same time count as income to the Corporation and, consequently, as offsets to the Corporation's own off-budget outlays. Since the Corporation will acquire funds only as needed, its net offbudget outlays will be approximately zero.9 Even though the exclusion of off-budget Federal entities from the budget results from provisions of law, the Congress has expressed concern about this practice. The Congressional Budget Act of 1974 calls for the Committees on the Budget of the House of Representatives and the Senate to study on a continuing basis those provisions of law that exclude any outlays of Federal entities from the budget and to report to their respective Houses their recommendations for terminating or modifying such provisions. In 1976, the House Budget Committee held hearings and then adopted a report recommending that the budget include the administrative expenses of the Exchange Stabilization Fund and the outlays of all other offbudget Federal entities except the Federal Financing Bank. At that time the Committee deferred judgment about the Federal Financing Bank.10 The House Budget Committee subsequently supported • In time, these loans will be repaid from windfall profit tax receipts. • Any receipts of the Corporation will also be offsets to its outlays and will reduce its need to borrow from Treasury. "House of Representatives, Committee on the Budget, Off-Budget Activities of the Federal Government, Report No. 94-1740 (1976); and First Concurrent Resolution on the Budget—Fiscal Year 1978' Report No. 95-189 (1977), pp. 11-12 and 135. PERSPECTIVES ON THE BUDGET 329 legislation to include the Federal Financing Bank in the budget and renewed its recommendation to include the other off-budget entities.11 The first and second congressional concurrent resolutions on the budget for 1980 recommended that a way be found within the congressional budget process to relate accurately the outlays of off-budget Federal entities to the budget. Except for the Postal Service and the Pension Benefit Guaranty Corporation, the excluded outlays of the off-budget Federal entities are incurred for carrying out loan programs. These programs are of the same nature as the direct loan programs in the budget. The outlays of the off-budget loan programs are approximately equal to the difference between new loans disbursed and repayments of principal. For example, during 1981, new loans disbursed by the excluded programs are estimated to be $25.6 billion and repayments $8.9 billion, for an increase in loans outstanding of $16.6 billion. This is about the same as the estimated outlays of these programs, which are $16.5 billion. The difference is due to such factors as administrative expenses and interest paid and received. Like direct loans in the budget, the loans of the off-budget entities are designed to allocate economic resources toward particular uses. Part 5 of the Budget, "Meeting National Needs: the Federal Program by Function," shows the outlays of the off-budget Federal entities by function and discusses some of their more significant activities. OUTLAYS OF OFF-BUDGET FEDERAL ENTITIES (In billions of dollars) Off-budget Federal entity Federal Financing Bank Rural Electrification and Telephone revolving fund. Rural Telephone Bank Pension Benefit Guaranty Corporation Postal Service fund U.S. Railway Association Energy Security Corporation Total 1979 actual 1983 estimate 1982 estimate 1981 estimate 1980 estimate 13.2 16.4 16.3 15.0 11.8 .1* 1 .1 .1 .2* -.9 .1 2 .1 1.6 .1 -.1 .1 .9 .1 12.4 16.8 18.1 15.1 12.9 *$50 million or less. As the table above shows, the Federal Financing Bank (FFB) accounts for most of the off-budget outlays. Among the other offbudget Federal entities, only the Postal Service fund in some years, such as 1981, has comparatively large outlays. The outlays of the 11 House of Representatives, Committee on the Budget, First Concurrent Resolution on the Budget—Fiscal Year 197$, Report No. 95-1055 (1978), p. 23. 330 THE BUDGET FOR FISCAL YEAR 1981 Postal Service fund are calculated with an offset for the subsidy that it receives, included in the budget, which is mostly for public service costs and for revenue forgone from carrying certain mail at free or reduced rates. This subsidy is estimated to be $1.6 billion in 1981. The FFB's outlays do not come from programs that the FFB operates itself. Instead, the FFB assists other programs within the Government by purchasing their debt securities or purchasing obligations that they have guaranteed. The outlays of the FFB include only its purchase of guaranteed obligations, not its purchase of Federal agency debt. An agency's outlays increase when it spends the proceeds of borrowing from the FFB, so FFB outlays must exclude this borrowing transaction in order to prevent double counting. The FFB buys two types of guaranteed obligations, newly originated loans and loan assets. When the FFB buys newly originated guaranteed loans, it is FFB that makes the loan, with the loan being guaranteed by another agency. Thus, the newly originated guaranteed loans are converted into direct Federal loans outside the budget. Loan assets are loans that an agency has made in the past. According to law, the category of loan assets also includes certificates of beneficial ownership issued by the Farmers Home Administration and Rural Electrification and Telephone revolving fund. These certificates are securities backed by loans that the agency continues to hold and service.12 The sales of loan assets are treated as offsets to the outlays of the agency that sells them, so if the selling agency is in the budget its loan asset sales reduce the amount by which the direct loans of Federal agencies add to budget outlays. When the FFB buys loan assets, it in effect converts direct loans that have already been made by another agency into off-budget direct loans of the FFB. 11 The President's Commission on Budget Concepts recommended that the sale of such securities (also known as participation certificates) be treated as borrowing, since as a means of financing outlays there is no difference between an agency selling securities labeled "certificates of beneficial ownership," the same agency selling securities labeled "debt," and the Treasury selling securities labeled "debt." See Report of the President's Commission on Budget Concepts (Washington: U.S. Government Printing Office, 1967), pp. 8, 47-48, and 54-55. PERSPECTIVES ON THE BUDGET 331 ATTRIBUTION OF FEDERAL FINANCING BANK OUTLAYS (In millions of dollars) Description Outlays from direct loans, by agency or program: Farmers Home Administration: certificates of beneficial ownership Rural Electrification and Telephone revolving fund: Certificates of beneficial ownership New originations Foreign military credit sales Low rent public housing , Community development Health maintenance organizations Student Loan Marketing Association1 Amtrak and other railroad programs Export-Import Bank: export guarantees National Aeronautics and Space Administration Small business investment companies Tennessee Valley Authority: Seven States Energy Corporation Other Subtotal, outlays from direct loans Interest, transfer of surplus, and administrative expenses Total, FFB outlays 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate 8,805 5,790 8,450 3,227 2,815 586 1,735 1,293 760 3,400 2,420 1,557 162 114 670 305 50 845 3,900 1,990 -50 264 138 -215 241 350 945 4,397 2,270 2,946 247 168 90 235 500 801 5,978 1,020 512 56 51 375 -51 340 184 86 132 188 101 184 182 109 64 684 18 16 30 -50 -58 13,282 16,249 16,244 15,157 11,949 -110 159 72 — 140 -143 13,172 16,408 16,316 15,017 11,806 5 20 530 -25 1 Beginning in 1982, it is proposed that the activities attributed to the Student Loan Marketing Association be assumed by the Government Student Loan Association within the Department of Education. The above table attributes FFB outlays to the agencies and programs that it assists by purchasing guaranteed loans and loan assets. FFB outlays attributed to an agency or program equal gross FFB loans (of either type) less repayments. The remainder of FFB outlays consists of administrative expenses, the transfer of surplus to the general fund, and interest paid on borrowings from Treasury, offset by interest received on its holdings of loans and debt. The attribution of FFB outlays by function is shown as a memorandum entry to the tables throughout Part 5, and a complete listing is given at the end of Part 8. 332 THE BUDGET FOR FISCAL YEAR 1981 As shown in this table on attributions, FFB assists a wide variety of programs by its purchases of guaranteed loans and loan assets. The largest part of FFB's outlays over the period as a whole, and in some years over half of its outlays, are attributable to its purchases of certificates of beneficial ownership from the Farmers Home Administration. Since the Farmers Home Administration is on-budget, these transactions decrease total budget outlays as well as the outlays of the Farmers Home Administration. The purchase of certificates of beneficial ownership from the off-budget rural electrification and telephone revolving fund explains the small size of this fund's outlays in the previous table on the outlays of offbudget entities. These transactions offset this fund's outlays and augment the outlays of the FFB. The following table compares the outlays of the off-budget Federal entities with budget outlays.13 The outlays of the entities that are now off-budget (which thus exclude the Export-Import Bank and Exchange Stabilization Fund) were negligible in 1973 but grew rapidly afterwards, as the Federal Financing Bank and other offbudget entities were created or shifted out of the budget. The outlays of the off-budget Federal entities equalled 2.5% of budget outlays in 1979 and are estimated to equal 3.0% in 1980 and 2.9% in 1981. » The historical data for budget outlays include Federal entities that are now off-budget for any period when they were in the budget, and include Government-sponsored enterprises for periods when they had any Government ownership. The outlays of former off-budget entities are included in the budget totals for all years to the extent practicable. 333 PERSPECTIVES ON THE BUDGET COMPARISON OF OUTLAYS FOR THE BUDGET, OFF-BUDGET FEDERAL ENTITIES, AND GOVERNMENT-SPONSORED ENTERPRISES (In billions of dollars) Outlays Federal Government1 Fiscal year Off-budget Federal entities Total Governmentsponsored enterprises1 196 0 196 1 196 2 196 3 196 4 92.2 97.8 106.8 111.3 118.6 92.2 97.8 106.8 111.3 118.6 .4 -.3 1.1 .5 1.8 196 5 196 6 196 7 196 8 196 9 118.4 134.7 158.3 178.8 . 184.5 118.4 134.7 158.3 178.8 184.5 1.2 1.9 -2.9 1.7 4.3 197 0 197 1 197 2 197 3 197 4 196.6 211.4 , 232.0 247.1 269.6 9.6 0.1 1.4 196.6 211.4 232.0 247.1 271.1 4.4 11.4 14.5 197 5 197 6 TQ 197 7 197 8 197 9 326.2 366.4 94.7 402.7 450.8 493.7 8.1 7.3 1.8 8.7 10.3 12.4 334.2 373.7 96.5 411.4 461.2 506.1 7.0 4.6 2.3 10.2 25.6 27.1 563.6 615.8 686.3 774.3 16.8 18.1 15.1 12.9 580.3 633.9 701.4 787.2 16.4 17.7 1980 1981 1982 1983 estimate. estimate. estimate. estimate. * 3 3 *$50 million or less. 1 The 1972-77 and TQ data have been revised to include the Export-Import Bank and the Housing for the elderly or handicapped fund in the budget instead of with the off-budget Federal entities. The administrative expenses and interest collections of the Exchange Stabilization Fund are included in the budget beginning in 1976, and the actual profits and losses realized from foreign exchange transactions are included beginning in 1979. Comparable data are not available for earlier years. * To prevent double counting, outlays of Government-sponsored enterprises exclude loans to other Government-sponsored enterprises and loans to or from Federal agencies and off-budget Federal entities. 1 Not available. 334 THE BUDGET FOR FISCAL YEAR 1981 Government-sponsored enterprises.—Several Government-sponsored enterprises have been established and chartered by the Federal Government to perform specialized credit functions. The earlier enterprises were all created with partial or full Government ownership and with direct Government control, but, in time, they were converted to private ownership and some new enterprises were created as privately owned institutions. The rule governing the budget treatment of these enterprises was established in 1967 in accordance with a recommendation by the President's Commission on Budget Concepts. The Commission recommended that the budget exclude those Government-sponsored enterprises that are entirely privately owned. Since the enterprises carry out federally designed programs and receive benefits from their close association with the Government, the Commission recommended that financial statements of their operations be included in the budget documents.14 The Federal land banks and Federal home loan banks had both become entirely privately owned a number of years before the unified budget was adopted and therefore have always been excluded. The Federal National Mortgage Association, the Banks for Cooperatives, and the Federal Intermediate Credit Banks became wholly privately owned by repaying their Federal equity capital late in calendar year 1968 and were accordingly removed from the budget for all later periods. The Federal Home Loan Mortgage Corporation and the Student Loan Marketing Association (SLMA) were subsequently established with full private ownership. Under proposed legislation, however, the activities of SLMA will be assumed in 1982 by the Government Student Loan Association, a division within the Department of Education, and these activities will be included within the budget totals. The Government-sponsored enterprises were all created to carry out loan programs, either lending their funds directly for specifically authorized purposes, or buying loans originated by the private groups that they were established to assist. Their loans primarily support housing, but also support agriculture and higher education. As shown in the preceding table, the outlays of the privately owned Government-sponsored enterprises have grown considerably—from relatively small amounts in the early 1960's to an average of $14.6 billion (equal to 3.6% of budget outlays) during 1975-79. The operations of the Government-sponsored enterprises are not subject to the Federal budget review process, and the economic assumptions on which their estimates are based are not necessarily the same as the administration's economic forecast shown in Part 3. In 1981 these enterprises estimate that they will spend $17.7 14 Report of the President's Commission on Budget Concepts, pp. 29-30. PERSPECTIVES ON THE BUDGET 335 billion, an amount equal to 2.9% of budget outlays in that year. The following table shows the amounts of Government-sponsored loans outstanding and net loans (i.e., the change in loans outstanding) during 1978-81, in billions of dollars:15 Loans outstanding, end of year. Net loans 1978 1979 1980 actual actual estimate 95.5 25.0 123.0 27.5 138.1 15.1 mi estimate 151.9 13.8 Taxation and tax expenditures.—Taxation affects the economy not only by providing the Government with receipts, but also by changing the allocation of resources among private uses and the distribution of income and wealth among individuals. These effects are caused by the structural characteristics of each different tax— for example, by the rate schedules, exemptions, deductions, and exclusions of the individual income tax—and by the magnitude of each tax. The effects of taxation on resource allocation and income distribution are analogous to the effects of outlays. Some features of the tax structure are called "tax expenditures" and receive special attention in the budget. Tax expenditures are defined as revenue losses under the individual and corporation income taxes that are attributable to a special exclusion, exemption, or deduction from gross income or to a special credit, preferential tax rate, or deferral of tax liability. Tax expenditures are one means by which the Federal Government pursues its objectives and in almost all cases can be viewed as alternatives to other instruments of Government policy, such as outlays, loan guarantees, regulations, and provisions of the tax law aside from those that give rise to tax expenditures. The objectives of tax expenditures are varied. Nearly all are intended either to encourage particular economic activities or to reduce the tax liabilities of taxpayers in special circumstances. Among the economic activities encouraged are investment, homeownership, State and local government borrowing, and support of charities; among the persons with reduced tax liabilities are many of the aged and unemployed and taxpayers with high medical expenses. Tax expenditures ordinarily result from permanent legislation and therefore, unlike much of the budget, are not submitted to the Congress each year and do not routinely receive a formal and systematic annual review. Some tax expenditures and many other provisions of tax law were, nonetheless, reviewed by the administration and the Congress during the 2 years of work that led to the Revenue Act of 1978. The Treasury Department and the Office of "To prevent double counting in adding Government-sponsored loans to Federal direct loans and loan guarantees, excludes loans from one Government-sponsored enterprise to another, loans from the Federal Government, and guaranteed loans acquired. 336 THE BUDGET FOR FISCAL YEAR 1981 Management and Budget reviewed a number of major tax expenditure provisions in connection with the review of this budget, particularly those provisions related to housing and energy. The Congressional Budget Act requires that the estimated levels of tax expenditures be presented each year in the budget that the President submits to the Congress and in the reports of the Senate and House Budget Committees to their respective Houses on the proposed congressional budget resolutions. This is intended to encourage regular examination of tax expenditures by the administration, the Congress, and the public. The provisions of the income tax law other than those that result in tax expenditures, although they can also affect the allocation of resources and the distribution of income, do not receive either an annual, systematic review or the kind of budget presentation mandated for tax expenditures; nor do taxes other than the individual and corporation income taxes receive such a review. However, tax expenditures, other provisions of the income tax, and other tax laws are generally all reviewed whenever fiscal policy decisions are considered regarding the overall level of tax receipts. The classification of certain provisions of law as resulting in tax expenditures requires some standard against which the law can be compared. Deviations of the law from this standard—sometimes called the "normal tax structure"—are deemed to cause tax expenditures. The "normal tax structure" used for the individual income tax includes those provisions that exist under current law for graduated rate schedules, personal exemptions, and standard deductions. Thus, under current definition, these characteristics of the tax structure do not generate tax expenditures. The normal tax structure is not defined in the tax code. The concept that is used has evolved from various congressional and public reviews of the tax system focusing on the definitions of the income tax base and on the rates applied to that base. A different standard might exclude personal exemptions and standard deductions and thus classify these provisions as resulting in tax expenditures; or, a different standard might integrate the individual and corporation income taxes, but the analysis in this budget regards the separate taxation of individuals and corporations as part of the normal tax structure. The provisions of tax law that are not defined as resulting in tax expenditures deserve as much scrutiny as the provisions that are, since they also have resource allocation and income distribution effects. Tax expenditures are presented at two places in the budget. Part 5, "Meeting National Needs: the Federal Program by Function/' discusses the most important tax expenditures in each functional category, together with outlays and loan guarantees, in order to describe more fully the effects of governmental policy toward meeting each national need. Special Analysis G, "Tax Expenditures," PERSPECTIVES ON THE BUDGET 337 discusses the concept of tax expenditures and presents a complete list of tax expenditure estimates for individuals and corporations in 1979-81.16 17 The figures shown for tax expenditures are necessarily estimates for past years as well as future ones, since they compare actual tax receipts with what tax receipts would have been if the tax law had been different. The method of estimation is to assume that only the tax provision in question is removed and that taxpayer behavior and all other characteristics of the tax system remain the same. If removing a particular provision would increase taxable income, as in most cases, the tax expenditure is then estimated as the increase in taxable income multiplied by the appropriate tax rate. The size of a particular tax expenditure depends not only on the tax provision in question but also on the interaction of this provision with the rest of the tax structure. The income tax changes enacted in 1978, as an example, automatically decreased many tax expenditures below what they otherwise would have been, since they reduced the tax rate schedules and raised standard deductions and personal exemptions. The reduction in the tax rate schedules decreased the amount of receipts that would be gained by repealing deductions and exclusions, because lower tax rates would be applied to the increase in taxable income; the higher standard deductions decreased the number of taxpayers itemizing deductions, thereby lowering tax expenditures for deductions, particularly those taken disproportionately by low-income taxpayers; and the higher standard deductions and personal exemptions decreased the taxable income and marginal tax rates of individual taxpayers, thereby reducing the receipts that would be gained by repealing deductions and exclusions. The interaction among tax provisions means that special calculations are generally needed to add tax expenditures together. For example, if more than one exclusion from individual income were ended, the gain in receipts would generally be greater than the sum of the separate tax expenditures, because some taxpayers would move into higher tax rate brackets. If more than one personal deduction were ended, the gain in receipts would generally be smaller than the sum of the separate tax expenditures, because some taxpayers would switch to the standard deduction. According to a special calculation made by Treasury, if all itemized deductions resulting in tax expenditures were eliminated, the gain in "See Special Analyses, Budget of the United States Government, Fiscal Year 1981. The presentation in the special analysis meets the requirement in the Congressional Budget Act that tax expenditures be set forth in the budget. "The role of certain tax expenditures as a form of credit assistance is discussed in Special Analysis F, "Federal Credit Programs." 338 THE BUDGET FOR FISCAL YEAR 1981 receipts in 1981 would be $44.5 billion. In comparison, the sum of the separate tax expenditures is $58.9 billion. Consequently, except for a few special calculations, adding together separate tax expenditures would be misleading, and they are not generally added together in this budget. Where tax expenditures for both individuals and corporations result from the same provision, however, such as the investment tax credit, the interaction is negligible and the two estimates may meaningfully be added. Even aside from these interaction effects, budget receipts would not necessarily be raised by the total amount of a group of tax expenditures if all the tax expenditure provisions were removed together. Tax expenditures and other provisions of tax law have frequently been changed together or viewed as substitutes for one another. Furthermore, a direct outlay may be substituted for a tax expenditure. Thus, an aggregation of tax expenditures that did take interaction into account would indicate the total resources available for some combination of cutting tax rates, increasing outlays, or reducing the deficit. The overall effects on resource allocation and income distribution from removing the tax expenditure provisions would therefore depend on the particular decisions made as to which changes in tax rates and outlays—out of a limitless number of alternatives—were used to compensate for their removal. As discussed in Part 4, "Budget Receipts," the principal tax change proposed in this budget is the windfall profit tax, which was initially proposed last year and is now in conference committee to resolve the differences between the versions passed by the Senate and the House. Since this is an excise tax, it does not itself give rise to tax expenditures. As a related part of the same program, however, the administration proposes to reduce the gross income base for calculating percentage depletion by the amount of the windfall profit. This would decrease the tax expenditure from percentage depletion. The proposal for a windfall profit tax has been accompanied by several tax expenditure proposals designed to stimulate energy conservation and production. They supplement the tax expenditure and other incentive provisions in the Energy Tax Act of 1978, which were discussed in last year's Budget Credits would be allowed against income tax for woodburning stoves and for builders who use passive solar technology in the construction of new residences and commercial buildings. Income tax credits would also be given to producers of natural gas from unconventional sources, such as tight sands. A further energy incentive, though not a tax expenditure, is the proposal to extend to the year 2000 the exemption of gasohol from the Federal excise tax on gasoline and diesel fuels. PERSPECTIVES ON THE BUDGET 339 The administration also supports the proposal to restrict the use of tax-exempt bonds for mortgage financing. This proposal would reduce the tax expenditure arising from the exemption of interest on State and local securities. The use of tax-exempt bonds would be banned for owner-occupied housing, and its use for multifamily housing projects would be limited to projects with a sufficient proportion of low-income residents. Enactment of this proposal would halt an abuse of the tax-exempt borrowing privilege and would stem a great potential loss in tax receipts. BUDGET FUNDS AND THE FEDERAL DEBT The budget consists of two major groups of funds: Federal funds and trust funds.18 The Federal funds are derived mainly from taxes and borrowing and are used for the general purposes of the Government. Most of these funds are not restricted by law to any specific Government program. The trust funds, on the other hand, collect certain taxes and other receipts for specified purposes, such as paying social security and unemployment insurance benefits. BUDGET TOTALS BY FUND GROUP (In billions of dollars) 1979 actual Budget receipts: Federal funds Trust funds Interfund transactions Total, budget receipts Budget outlays: Federal funds Trust funds Interfund transactions Total, budget outlays Budget surplus or deficit ( - ) : Federal funds Trust funds 1980 estimate 1981 estimate 1982 estimate 1983 estimate 316.4 189.6 -40.1 347.8 222.2 -46.2 383.2 265.1 -48.3 438.3 307.0 -54.2 515.5 340.7 -57.3 465.9 523.8 600.0 691.1 798.8 362.4 171.3 -40.1 405.7 204.1 -46.2 429.7 234.3 -48.3 480.2 260.3 -54.2 543.6 288.1 -57.3 493.7. 563.6 615.8 686.3 774.3 -46.1 18.3 -57.8 18.1 —46.5 30.8 -41.9 46.7 -28.1 52.6 -39.8 -15.8 4.8 24.5 -16.8 -18.1 -15.1 -12.9 -56.5 -33.9 — 10.3 11.7 Total, budget surplus or deficit -27.7 (-) Memorandum: Deficit (-), off-budget Federal entities1..- 1 2 . 4 Total, surplus or deficit ( - ) including off-budget Federal entities -40.2 ' All off-budget Federal entities are revolving funds; income is offset against expenditure to derive net outlays. Hence, no adjustments are made to receipts when on and off-budget totals are consolidated. Virtually all off-budget outlays would be classified as Federal funds outlays if they were included in the budget. " Data for Federal funds and trust funds are presented in Special Analysis C, "Funds in the Budget," in Special Analyses, Budget of the United States Government, Fiscal Year 1981. 340 THE BUDGET FOR FISCAL YEAR 1981 The budget includes the receipts and outlays of both the Federal funds and the trust funds and, as shown in the table on the previous page, deducts the various transactions that occur between them. The budget totals for receipts and outlays therefore generally display the net transactions of the Federal Government with the public. The budget does not, however, include the transactions of the Federal Financing Bank and the other off-budget Federal entities, which have been excluded from the budget under provisions of law. Were they to be included in the budget, virtually all of their transactions would be classified in the Federal funds group. BUDGET FINANCING AND CHANGE IN DEBT OUTSTANDING 1 (In billions of dollars) Description 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate Budget surplus or deficit ( — ) Deficit (—) of off-budget Federal entities -27.7 -12.4 -39.8 -16.8 -15.8 -18.1 4.8 — 15.1 24.5 — 12.9 Total, surplus or deficit ( - ) -40.2 -56.5 -33.9 -10.3 11.7 2.1 10.1 .7 2.7 1.0 .3 .9 1.0 _ 3 6 .4 1.0 1.1 Total, means of financing other than borrowing from the public 6.5 12.2 .8 1.0 1.1 Total, requirements for borrowing from the public —33.6 -44.3 -33.1 -9.3 12.7 33.6 44.3 33.1 9.3 -12.7 3.4 15.6 .7 1.4 13.8 -.4 24.0 29.0 Means of financing other than borrowing from the public: Decrease or increase ( - ) in cash and monetary assets Increase or decrease ( - ) in liabilities for: Checks outstanding, etc Deposit fund balances Seigniorage on coins Change in debt held by the public Change in Federal agency investments in Federal debt: Federal funds Trust funds4 Off-budget Federal entities Total, change in Federal agency investments in Federal debt Change in gross Federal debt 1 2 16 13.8 -1.9 , 19.7 14.8 13.4 24.0 29.0 53.3 59.1 46.5 33.2 16.2 Several amounts have been assumed to be zero in 1982 and 1983 because they are usually small and cannot be estimated accurately. Estimates for 1982 and 1983 are equal to the total trust fund surplus less the surplus of the Energy security trust fund. PERSPECTIVES ON THE BUDGET 341 Thus, as shown in the preceding table, the combined deficit or surplus of the budget and the off-budget entities is the principal determinant of the change in the Federal debt held by the public.19 The budget and off-budget deficits, together with the other factors noted in this table, are estimated to increase the Federal debt held by the public from $644.6 billion at the end of 1979 to $722.0 billion at the end of 1981—a $77.4 billion increase over the 2 years. Debt beyond the budget year is projected on the basis of the assumptions for the economy and the tentative long-range planning base that are explained in Part 3 of this volume. Debt held by the public is projected to rise in 1982, due to the deficit of the off-budget Federal entities, but to fall in 1983 because of a large budget surplus. Gross Federal debt is the sum of the debt held by the public and the debt held by the Government itself, which includes such investments as the Treasury debt held by the social security and other trust funds. At the end of 1981 gross Federal debt is estimated to be $939.4 billion, of which internally held debt is $217.4 billion. Thus, gross Federal debt is much larger than the Federal debt held by the public. Gross Federal debt is estimated to rise by $46.5 billion during 1981. As indicated in the lower section of the preceding table, $13.4 billion of this increment will be held by trust funds and other Federal agencies, reflecting mainly the investment of trust fund surpluses in Treasury debt. The Federal funds deficit and the deficit of off-budget Federal entities have ordinarily been the principal determinants of the change in gross Federal debt. The gross Federal debt consists almost entirely of securities issued by the Treasury Department. However, a few Government agencies are authorized to issue their own debt instruments to the public or to other Government agencies and funds. These securities are part of the gross Federal debt. At the end of 1979 the public held $5.8 billion of agency debt. This debt is expected to fall by small amounts each year as existing agency debt matures and most new agency borrowing is from the Federal Financing Bank (FFB). The FFB finances its purchases of agency debt by borrowing from Treasury, which in turn borrows from the public. To prevent double counting, FFB's holdings of agency debt are not included in gross Federal debt. 16 Table 9 in Part 9 of this volume contains more detail on budget financing through 1981 and shows the levels of debt from 1978 to 1981. Federal debt is discussed further in Special Analysis E, "Borrowing, Debt, and Investment," in Special Analyses, Budget of the United States Government, Fiscal Year 1981. 342 THE BUDGET FOR FISCAL YEAR 1981 As shown in the following chart, the debt held by the public was equal to more than 40% of GNP in the early 1960's, and gross Federal debt was equal to more than 50%. Both proportions declined steadily through 1974. Because of the successive large deficits induced by the 1974-75 recession and its aftermath, Federal debt as a proportion of GNP then rose. Federal debt held by the public increased from a postwar low of 25% in 1974 to 30% in 1977, but has declined since then and is estimated to decline further to 26% in 1981 and to still lower proportions in the following 2 years. Federal Debt as a Percent of G N P 1980 '83 Estimate 343 PERSPECTIVES ON THE BUDGET FEDERAL FUNDS FINANCING AND CHANGE IN DEBT SUBJECT TO LIMIT (In billions of dollars) Description 1979 actual 1980 estimate 1981 estimate Federal funds surplus or deficit (—) Deficit (—) of off-budget Federal entities — 46.1 -12.4 -57.8 -16.8 -46.5 -18.1 Total, amount to be financed -58.5 -74.6 -64.6 2.1 10.1 3.5 2.7 1.0 -1.1 .9 1.0 5.7 -.2 .6 .4 17.0 9.3 16.6 17.8 -4.1 -1.0 .3 -1.6 -.5 -.5 -54.9 -59.6 -47.1 54.9 59.6 47.1 Means of financing other than borrowing: Decrease or increase ( - ) in cash and monetary assets Increase or decrease ( — ) in liabilities for: Checks outstanding, etc Deposit fund balances Seigniorage on coins Uninvested trust fund surplus 1 Total, means of financing other than borrowing Decrease or increase ( - ) in Federal funds and off-budget entity investments in Federal debt Increase or decrease ( - ) in Federal funds and off-budget entity debt not subject to limit Total, requirements for borrowing subject to debt limit Change in debt subject to limit 1 Energy Security Trust Fund only. Almost all Treasury debt issues are covered by a statutory debt limit, though most borrowing by Federal agencies other than the Treasury is excluded from this limit. The ceiling on the debt subject to limit is $879 billion through May 31, 1980. To permit the Federal Government to meet its obligations, this ceiling will have to be extended and raised. Debt subject to the general statutory limit, like gross Federal debt, includes debt held internally within the Government, such as the Treasury issues held by the social security trust funds. Debt subject to the statutory limit is therefore much larger than the debt held by the public and is nearly as large as gross Federal debt. It is a little less than gross Federal debt primarily because of the exclusion of most agency debt from the general statutory limitation. Since trust fund surpluses for the most part have been invested in debt securities included under the general statutory limit, the Federal funds deficit and the deficit of off-budget Federal entities 344 THE BUDGET FOR FISCAL YEAR 1981 must normally be financed primarily by selling Federal debt; and this debt is almost entirely subject to the statutory limit. As shown in the preceding table, the Federal funds deficit plus the off-budget deficit was $58.5 billion in 1979, and the increase in debt subject to statutory limit was $54.9 billion. Thus, these deficits approximately accounted for the increase in the debt subject to limit. The surplus of the proposed energy security trust fund will not be invested in Federal debt, however, and thus will be available to finance Federal funds and off-budget outlays without an increase in debt subject to limit (and without an increase in gross Federal debt). Thus, in 1981 the estimated increase in debt subject to limit is substantially less than the total deficit of the Federal funds and off-budget Federal entities. A large part of the Federal funds deficit—and, therefore, a large part of the growth in debt subject to limit—is associated with transactions between Federal funds and trust funds. These transactions consist primarily of Federal funds payments to trust funds. These payments include interest paid on Treasury debt securities held by trust funds; the employer share of employee retirement payments; the Federal payment to finance the unfunded liability of the civil service retirement fund; and other payments, which are primarily to social insurance trust funds, such as the Federal Government's contribution for supplementary medical insurance. The trust fund payments to Federal funds are relatively small. BUDGET SURPLUS OR DEFICIT ( - ) BY FUND GROUP1 (in billions of dollars) „ . . Description Federal funds: Transactions with the public2 Transactions with trust funds. Total Trust funds: Transactions with the public2 Transactions with Federal funds Total Budget total: Federal funds Trust funds Total 1979 actual 1980 estimate 1981 estimate 1982 estimate 1983 estimate -14.8 -31.2 -24.0 -33.9 -6.5 -40.0 3.0 -44.9 19.1 -47.3 —46.1 —57.8 -46.5 -41.9 -28.1 -12.9 31.2 -15.8 33.9 -9.3 40.0 1.8 44.9 5.4 47.3 m rn m 46.7 52i -46.1 m -57.8 m -46.5 30.8 -41.9 46.7 ~ -28.1 52i _27.7 -39.8 -15.8 4.8 24.5 ' For purposes of this analysis, payments from Federal funds to the general revenue sharing trust fund are treated as transactions with the public instead of transactions with a trust fund; and the corresponding payments from the general revenue sharing trust fund to the public are accordingly omitted. This is because the general revenue sharing trust fund has no independent source of funding, and serves only as a channel through which a Federal funds payment is made to the public. 3 Includes some incidental transactions with off-budget Federal entities. PERSPECTIVES ON THE BUDGET 345 The cumulative Federal funds deficit from 1970 through 1979 was $410.9 billion, of which $199.4 billion was attributable to transactions with trust funds and the remaining $211.5 billion was attributable to transactions with the public. The Federal funds group can have a deficit at the same time as there are surpluses in the budget and in the transactions of the Federal funds group with the public. This occurred in 1969 and is projected to occur again in 1982 and 1983. The net transactions of the Federal funds with the public and with the trust funds are shown in the preceding table in comparison with the budget surplus or deficit. RECONCILIATION OF RELATIVELY UNCONTROLLABLE OUTLAYS AND OF RECEIPTS The Congressional Budget Act requires that the budget contain two reconciliations between the initial budget estimates and the actual amounts for the last completed fiscal year: a reconciliation of the differences in relatively uncontrollable outlays by major program, and a reconciliation of the differences in receipts by major source. These comparisons are made in the following two sections for the 1979 budget, which was submitted in January 1978 for the fiscal year beginning on October 1, 1978. Reconciliation of relatively uncontrollable outlays.—Outlays in any one year are considered to be relatively uncontrollable when the program level is determined by existing statute or by contract or other obligations. These outlays generally depend on factors that are beyond administrative control under existing law at the start of the fiscal year. For example, the definition of beneficiaries eligible for programs like medicaid and social security is established by law, and usually can be altered only by a change in the law. Prioryear contracts and obligations are also legally binding. The amounts estimated in the budget for relatively uncontrollable outlays may differ from the actual outlays that are subsequently realized for a number of reasons. For example, legislation may change benefit rates or coverage; the actual number of beneficiaries may differ from the number estimated; and economic conditions (such as the interest rates) may differ from what was assumed in making the estimates. Relatively uncontrollable outlays are grouped into two major categories: open-ended programs and fixed costs, for which outlays are generally mandated by law; and payments from prior-year contracts and obligations, for which outlays are required because of previous action, such as entering into contracts. In accordance with the definition of uncontrollable outlays, these budget estimates do not include the effect of proposed legislation. In cases where legis- 346 THE BUDGET FOR FISCAL YEAR 1981 lation was enacted that significantly affected relatively uncontrollable outlays in 1979, it is identified in the discussion below. The following table shows the differences between actual outlays for relatively uncontrollable programs for 1979 and the amounts estimated in the 1979 budget. The list of programs in this table is the same as table 15 (Controllability of Budget Outlays) in Part 9 of this year's Budget RELATIVELY UNCONTROLLABLE OUTLAYS FOR 1979 (In billions of dollars) Relatively uncontrollable under present law January 1978 estimate (existing law) Change Open-ended programs and fixed costs: Payments for individuals: Social security and railroad retirement Federal employees retirement and insurance (Military retired pay) (Other)1 Unemployment assistance Medical care Assistance to students12 Housing assistance Food and nutrition assistance2 Public assistance and related programs13 All other relatively uncontrollable payments for individuals1 107.8 29.0 (10.1) (18.9) 11.8 42.1 2.7 4.3 8.6 16.5 2.0 .7 2.7 Subtotal, payments for individuals Net interest General revenue sharing Farm price supports (CCC) Other open-ended programs and fixed costs1 225.0 39.9 6.9 4.5 9.5 -.1 2.7 -.8 -1.5 224.9 42.6 6.8 3.7 8.0 285.8 .3 286.1 33.8 55.7 -2.9 -6.6 30.9 49.1 89.5 375.3 —9.5 -9.2 80.0 366.1 Total, open-ended programs and fixed costs Outlays from prior-year contracts and obligations: National defense Civilian programs Total, outlays from prior-year contracts and obligations Total, relatively uncontrollable outlays.. -1.1 .9 (.2) (.8) -1.1 -.5 .1 1.2 -.1 106.7 30.0 (10.3) (19.7) 10.7 41.6 2.8 4.2 9.8 16.4 *$50 million or less. »This subcategory now contains elements that were previously classified in the veterans benefits grouping. This is a new subcategory within payments for individuals. 4 Revised to treat earned income credit payments in excess of the tax liability otherwise owed as outlays instead of tax refunds. s In the aggregate, outlays for relatively uncontrollable programs were $366.1 billion, which is $9.2 billion lower than estimated. Outlays for open-ended programs and fixed costs were $0.3 billion higher, and outlays from prior-year contracts and obligations were $9.5 billion lower. * Open-ended programs and fixed costs consist mainly of benefit programs, grants, and subsidies for which eligibility is automatic or fixed by law; interest payments; farm price supports; and payments PERSPECTIVES ON THE BUDGET 347 for the legislative and judicial branches, which the President must—by law—include in the budget as submitted and without change. Payments for individuals is a grouping of Federal budget outlays that are essentially income transfers rather than payments for direct Federal operations. Total payments for individuals, taking all subcategories together, were 79 % of all open-ended programs and fixed costs in 1979. Actual outlays for this grouping were $0.1 billion lower than estimated. This was caused by differences between actual and assumed economic conditions and beneficiary numbers, and by the enactment of legislation. In 1979 the subcategories within payments for individuals were changed in order to make them more meaningful. All changes in these subcategories are identified in the text below.20 Outlays for social security retirement and disability and for railroad retirement were $1.1 billion lower than estimated. Over 75% of this difference is due to an unexpected decrease in the number of applications for disability insurance benefit awards. There were 5.2 million disability insurance beneficiaries forecasted while the actual number was 4.9 million. This difference was in part due to lower unemployment rates than assumed, which gave more opportunity for severely disabled persons to find and retain jobs, and in part due to stricter screening in the award of disability benefits. Actual outlays for Federal employee retirement and disability insurance programs were $0.9 billion above the budget estimate. These programs primarily consist of military retired pay, civilian employee retirement and disability (largely civil and foreign service), and veterans service-connected compensation (which previously had been in a separate category). Except for veterans compensation, these benefits are indexed to the consumer price index. Outlays for the indexed programs exceeded the budget estimates by nearly $0.3 billion largely because of higher than anticipated costof-living increases. The original estimates assumed consumer price index increases of 2.9% in September 1978 and 3.1% in March 1979, while the actual increases were 4.9% and 3.9%, respectively. Actual spending for veterans service-connected compensation was $0.6 billion higher than estimated due to the enactment of the Veterans Disability Compensation and Survivors Benefits Act of 1978. This legislation increased compensation for disabled veterans and their survivors by 7.3% beginning October 1, 1978. Outlays for unemployment compensation programs were $1.1 billion lower than estimated largely due to lower than anticipated M These changes are discussed in greater detail in the OMB technical staff paper entitled Payments for Individuals, which is available on request. These changes do not affect the total outlay figure for open-ended programs and fixed costs. 348 THE BUDGET FOR FISCAL YEAR 1981 unemployment. The unemployment rate for fiscal year 1979 was 5.8%, compared to the budget forecast of 6.0%. Outlays for medical care were $0.5 billion lower than estimated. The hospital insurance component of medicare accounts for most of this difference. In response to the administration's proposal for hospital cost containment, the hospital industry initiated its own program to control costs, which reduced medicare spending. Outlays for supplementary medical insurance were somewhat lower than estimated, and outlays for medicaid were higher. Assistance to students is a new subcategory in open-ended programs and fixed costs arising from the reclassification of payments for individuals. It mainly consists of GI bill benefits. Actual outlays were $0.1 billion higher than estimated due to unexpectedly high enrollment. Outlays for food and nutrition assistance, another new subcategory of payments for individuals, were $1.2 billion higher than estimated. The food stamp program accounts for $1.1 billion of this difference. The 1977 Food Stamp Act increased participation in that program more quickly and to higher levels than anticipated, and the average monthly bonus per beneficiary was higher than expected due to food price increases and higher participation by poorer families. In addition, outlays for child nutrition programs were higher because more meals were served than had been assumed. Public assistance and related programs include public assistance, supplemental security income, outlays for earned income tax credits, and veterans non-service-connected pensions. Outlays were $0.1 billion below the initial estimate. Lower than estimated outlays in the first three programs were largely offset by legislated benefit improvements for veterans pensions. Uncontrollable outlays for all other payments for individuals were $0.7 billion higher than estimated. Amendments to the Federal Coal Mine Health and Safety Act, enacted in March of 1978, account for most of this difference. The amendments removed certain eligiblity restrictions and made it easier for applicants to qualify for black lung benefits. Increased access to benefits, and, to a lesser extent, the administrative costs associated with complying with these reforms, account for almost the full increase. Net interest outlays were $2.7 billion above the budget estimate. Interest on the public debt was $3.7 billion higher due to significantly higher interest rates than were assumed. The budget estimate assumed a 6.1% interest rate on 91-day Treasury bills for 1979 while the actual 91-day rate averaged 9.3%. The effect of higher interest rates on 1979 outlays more than offset the effect of lower-than-projected borrowing in 1979. Borrowing requirements were $6.7 billion lower than estimated in 1978 and $32.9 billion PERSPECTIVES ON THE BUDGET 349 lower in 1979. Interest received by trust funds, which is offset against interest costs to reflect transactions with the public, was $0.9 billion higher than the budget estimate. Actual outlays for general revenue sharing virtually matched the original estimate since the amounts are specified by the law, which authorizes the program through September 30, 1980. Farm price supports were $0.8 billion lower than estimated. Greater export demand than anticipated resulted in higher average prices for wheat and feed grains, and reduced the need for support payments. Other open-ended programs and fixed costs were $1.5 billion below the original budget estimates. Outlays for the foreign military sales trust fund were $1.7 billion lower than anticipated, largely because contracts for the sale of military equipment to Iran were cancelled. Outlays of the multilateral development banks were $0.2 billion lower than estimated. Slower than anticipated disbursements of loans explains this difference, in part. These overestimates were partially offset by higher than anticipated outlays for social service grants and for prior-year claims arising from social service grants. Outlays for prior-year contracts and obligations were $9.5 billion lower than estimated. National defense outlays for prior-year contracts and obligations were $2.8 billion below the budget estimate largely due to a technical change in the accounting method used to record unexpended balances for military construction. This change more than offset military procurement outlays in this category, which were higher than estimated. Civilian program outlays for prior-year contracts and obligations were $6.6 billion lower than estimated. Major shortfalls occurred in programs administered by the Departments of Housing and Urban Development, Energy, Transportation, Health and Human Services, and Commerce. These programs account for $5.4 billion of the difference between actual and estimated outlays for prior-year contracts and obligations of civilian programs. Programs administered by the Department of Housing and Urban Development (HUD) account for $2.1 billion of the overestimate in civilian programs in this category. Accurate estimation is made more difficult by the volatile nature of mortgage sales and their dependence on market conditions. Outlays for HUD's tandem mortgage purchase programs were significantly lower than estimated because mortgage sales (an offset to outlays) were higher. Of the total difference between actual and estimated outlays for prior-year contracts and obligations of civilian programs, $1.3 billion is attributable to Department of Energy programs. Outlays for prior-year contacts and obligations of Department of Transportation programs were $1.2 billion lower than estimated. Over $0.8 350 THE BUDGET FOR FISCAL YEAR 1981 billion of this was due to the Urban mass transportation trust fund. Programs in this category administered by the Department of Health and Human Services were overestimated by $0.5 billion. The $0.4 billion overestimate for Commerce Department programs in this category can be attributed to the local public works program and the Economic development revolving fund. The remaining $1.2 billion in the overestimate of outlays for civilian prior-year contracts and obligations is attributable to small differences divided among numerous other Federal agencies. Reconciliation of actual and estimated receipts.—As shown in the following table, receipts for 1979 were $465.9 billion, $25.5 billion greater than the January 1978 estimate of $440.5 billion. Differences in tax law from the legislation proposed in the budget increased receipts by $18.9 billion, while higher than anticipated incomes and changes in collection patterns and effective tax rates account for the remaining increase of $6.5 billion. COMPARISON OF FISCAL YEAR 1979 RECEIPTS (In billions of dollars) January 1978 estimate Individual income taxes Corporation income taxes Social insurance taxes and contributions Excise taxes Estate and gift taxes Customs duties Miscellaneous receipts Total 1 Change from 1978 estimate Actual 1 191.0 62.5 141.9 25.5 6.1 6.4 7.2 26.9 3.2 -.3 -6.7 -.7 1.0 2.0 217.8 65.7 141.6 18.7 5.4 7.4 9.2 1 440.5 25.5 465.9 Revised to treat earned income credit payments in excess of the tax liability otherwise owed as outlays instead of tax refunds. In the 1979 budget, the administration proposed permanent individual and corporation income tax reductions, generally effective October 1, 1978, as well as a number of simplifications and reforms, generally effective January 1, 1979. Together, these proposals were estimated to decrease 1979 receipts $31.8 billion.21 The President's proposed national energy plan, which contained several tax provisions to provide incentives to conserve energy and to convert energy use away from oil and natural gas toward other fuels, was estimated to increase 1979 receipts by $1.1 billion. Other proposals reduced estimated receipts by $1.9 billion. They included repeal of the tax on telephone services; a reduction in the Federal unemployment insurance tax rate; an excise tax on crude oil to create a fund " In comparison to the extension of the temporary tax provisions of the Tax Reduction and Simplification Act of 1977, which were scheduled to expire December 31, 1978, these proposals reduced receipts $23.5 billion in PERSPECTIVES ON THE BUDGET 351 to pay damages and cleanup costs of oil pollution; a 2-percentagepoint reduction in the tax on airplane passenger tickets and airfreight; payments by the Federal Reserve System of interest on member bank deposits; and an increase in the charge for migratory bird hunting stamps. Together, the proposals in the 1979 budget reduced estimated receipts by $32.6 billion. During 1978, three major acts were passed that reduced 1979 receipts by $13.5 billion: the Revenue Act of 1978, the Energy Tax Act of 1978, and the Foreign Earned Income Act of 1978. The Revenue Act of 1978, which was enacted November 6, 1978, reduced taxes for individuals and corporations, generally effective January 1, 1979, and included several of the administration's tax reform proposals. Together, the provisions of this Act reduced 1979 receipts by $11.9 billion.22 The Energy Tax of 1978, which contained several provisions designed to reduce our energy problems, and the Foreign Earned Income Act of 1978, which altered the tax treatment of income earned abroad, reduced 1979 receipts by $1.0 billion and $0.6 billion, respectively. Other enacted legislation increased 1979 receipts by a net amount of $0.2 billion: the Black Lung Benefits Revenue Act, which levied a tonnage tax on coal to finance benefits for disabled coal miners; the Highway Revenue Act, which exempted qualified taxicabs from the Federal gasoline tax; the Outer Continental Shelf Lands Act, which levied a tax on crude oil obtained from the Outer Continental Shelf to create a fund to pay damages and clean-up costs of oil pollution; the Customs Procedural Reform Act, which raised the amount of duty free imports allowed Americans returning from abroad; and the Migratory Bird Hunting Stamp Act, which increased the charge for migratory bird hunting stamps. An increase in sugar import fees and the waiver of import duties and fees on crude oil and petroleum products, which were accomplished by administrative action, reduced 1979 receipts by a net $0.3 billion.23 Individual income taxes were $217.8 billion in 1979, $26.9 billion greater than the original budget estimate. As shown in the following table, legislated tax reductions, which were less than those proposed by the administration, increased receipts above the estimate by a net amount of $21.7 billion. Higher than anticipated personal incomes and an underestimate of collections increased individual income tax receipts by an additional $5.2 billion. SJ In comparison to the extension of the temporary tax provisions of the Tax Reduction and Simplification Act of 1977, this Act reduced 1979 receipts $4.4 billion. " Pursuant to Presidential Proclamation 4655, fees and customs duties on imported crude oil and petroleum products have been waived by the Secretary of Energy through June 30, 1980. As of the time this budget was completed, no determination had been made as to whether the authority granted under Proclamation 4655 would be extended beyond June 30, 1980, and this budget includes, for periods beyond that date, revenues received from such import fees and customs duties. THE BUDGET FOR FISCAL YEAR 1981 352 RECONCILIATION OF ACTUAL 1979 RECEIPTS WITH THE JANUARY 1978 ESTIMATES (In billions of dollars) January 1978 estimate Individual income taxes Corporation income taxes Social insurance taxes and contributionsExcise taxes Estate and gift taxes Customs duties Miscellaneous receipts Total 1 191.0 62.5 141.9 25.5 6.1 6.4 7.2 1 440.5 Inaction on legislative proposals 2 31.1 7.5 .6 -6.8 2 Enacted legislation and administrative actions s-9.4 3 -4.0 .1 Technical adjustments and revised incomes 5.2 -.3 -.9 * .2 -.2 -.1 -.7 1.2 2.0 32.6 -13.6 6.5 Actual receipts 217.8 65.7 141.6 18.7 5.4 7.4 9.2 465.9 *$50 million or less. * Revised to treat earned income credit payments in excess of the tax liability otherwise owed as outlays instead of tax refunds. • In comparison to the extension of the temporary tax provisions of the Tax Reduction and Simplification Act of 1977 which were scheduled to expire December 31, 1978, inaction on these proposals increased individual income taxes and corporation incomes by an estimated $23.9 billion and $6.4 billion, respectively. * In comparison to the extension of the temporary tax provisions of the Tax Reduction and Simplification Act of 1977, these enacted tax changes reduced individual income taxes and corporation income taxes by $2.9 billion and $3.0 billion, respectively. Corporation income tax receipts were $65.7 billion in 1979, $3.2 billion greater than the January 1978 estimate of $62.5 billion. Substitution of the Revenue Act of 1978 and the Energy Tax Act for the January 1978 proposals increased corporation income taxes by $3.5 billion. Different effective tax rates, collection patterns, and economic conditions than assumed in January 1978 reduced receipts by $0.3 billion. Social insurance taxes and contributions in 1979 were $0.3 billion less than the January 1978 estimate. Higher employment taxes and contributions, largely due to higher than anticipated wages and salaries, increased receipts by $0.5 billion; and an increase in contributions for other insurance and retirement programs raised receipts by $0.2 billion. This increase was more than offset by lower than anticipated unemployment insurance tax receipts of $0.9 billion. Inaction on a proposal to reduce the Federal unemployment insurance tax rate from 0.7% to 0.5% effective January 1, 1979, increased unemployment tax receipts by $0.6 billion. However, State taxes deposited in the Treasury to finance unemployment benefits were lower than estimated by $1.5 billion. The $6.7 billion shortfall in excise tax receipts is due almost entirely to inaction on the administration's proposed national energy plan. Estate and gift taxes were $0.7 billion below the January 1978 estimate, and customs duties were $1.0 billion higher. Increased imports of steel, automobiles, and electronic products are largely responsible for the higher customs duties. An increase in miscellaneous receipts of $2.0 billion is in large part due to a $2.0 billion underestimate of deposits of earnings by the Federal Reserve System. Significantly higher interest rates than were assumed in the budget account for almost all of this underestimate. PART 7 THE BUDGET SYSTEM AND CONCEPTS THE BUDGET SYSTEM AND CONCEPTS The budget system of the U.S. Government supports decisionmaking and management of programs in relation to the requirements of the Nation, effective financial control, and accountability for the use of Federal resources. THE BUDGET PROCESS The budget process has four main phases: (1) executive formulation and transmittal; (2) congressional action; (3) budget execution and control; and (4) review and audit. Each of these phases is interrelated with the others. Executive formulation and transmittal—The budget sets forth the President's financial plan and indicates his priorities for the Federal Government. The President's transmittal of his budget to the Congress early in each calendar year is the climax of many months of planning and analysis throughout the executive branch. Formulation of the 1981 budget began in the spring of 1979, although general goals were set earlier. The budget is formulated in the context of a 3-year budget planning and tracking system. The budget planning horizon covers the 2 years following the budget year and integrates long-range planning into the executive budget cycle. This multiyear budget planning system requires that broad fiscal goals and agency spending targets beyond the budget year be established during the budget planning process. During the period when a budget is being formulated in the executive branch, there is a continual exchange of information, proposals, evaluations, and policy decisions among the President, the Office of Management and Budget (OMB) and other Executive office units, and the various Government agencies. Decisionmaking in the budget process is facilitated by the use of zero-base budgeting, a management process that provides for an in-depth evaluation of all proposed and existing programs and activities in conjunction with planning and budgeting. In the spring, agency programs are evaluated, policy issues are identified, and budgetary projections are made, giving attention both to important modifications and innovations in programs and to alternative long-range program plans. These budgetary projections, including projections of estimated receipts prepared by the Department of the Treasury, are then presented to the President 354 THE BUDGET SYSTEM AND CONCEPTS 355 for his consideration, and the major issues are discussed. At about the same time, the President receives projections of the economic outlook that are prepared jointly by the Council of Economic Advisers, OMB, and the Departments of Commerce, Labor, and the Treasury. Following a review of these projections, the President establishes general budget and fiscal policy guidelines for both the fiscal year that will begin about 15 months later and for the 2 years beyond. General policy directions and planning ceilings are then given to the agencies to govern the preparation of their budget requests. Throughout the fall and early winter the executive branch is involved in the development of the President's budget. Current services estimates are also prepared to provide the Congress with a basis for the review of the President's budget. These estimates are projections of budget authority and outlays required to continue Federal programs and activities in the upcoming fiscal year without policy changes from the fiscal year in progress at the time the estimates are transmitted. The Congressional Budget Act of 1974 requires that these estimates be transmitted to provide the Congress with early information on projected costs of current programs. For the first 2 years after the requirement became effective, they were transmitted in November. However, it was generally agreed that the estimates transmitted at that time did not provide a suitable basis for review, since the underlying assumptions changed before the budget was transmitted. As a result, the comparability of the current services and the budget estimates was lessened significantly. Consequently, the current services estimates are now transmitted with the President's budget. The primary phase of the budget process involves the formulation and preparation of the President's budget for transmittal to the Congress. Budget determinations are developed after detailed reviews of the agency zero-base budget requests and the Government-wide OMB ranking of zero-base decision packages falling at the margin of approved agency totals. These determinations are then discussed with the agencies and revised as a result of later Presidential decisions. Fiscal policy issues—relating to total budget outlays and receipts—are reexamined. Consistent with the multiyear budget planning system, the effects of budget decisions on budget authority and outlays in the years that follow are also considered and are explicitly taken into account. Thus, the budget formulation process involves the simultaneous consideration of the resource needs of individual programs, and the total outlays and receipts that are appropriate in relation to current and prospective economic conditions. The budget reflects the results of both of these considerations. 356 THE BUDGET FOR FISCAL YEAR 1981 Congressional action.—The Congress can act to approve, modify, or disapprove the President's budget proposals. It can change funding levels, eliminate proposals, or add programs not requested by the President. It may also act upon legislation determining taxes and other means of increasing or decreasing receipts. In making appropriations, the Congress does not normally vote on the level of outlays directly, but rather on budget authority. The Congress first enacts legislation that authorizes an agency to carry out a particular program and, in some cases, includes limits on the amount that subsequently can be appropriated for the program. Many programs are authorized for a specified number of years or indefinitely; other programs, such as most education and health programs, nuclear energy programs, space exploration, defense procurement, foreign affairs, and some construction programs, require annual authorizing legislation. Provision of budget authority is usually a separate, subsequent action. Generally, budget authority becomes available each year only as voted by the Congress in appropriation acts. However, in a significant number of cases the Congress has voted permanent budget authority, under which funds become available annually without further congressional action. Most trust fund appropriations are permanent, as are a number of Federal fund appropriations, such as the appropriation to pay interest on the public debt. Congressional review of the budget begins when the President transmits his budget estimates to the Congress within 15 days after the start of each new session in January, as required by law. Under the procedures established by the Congressional Budget Act of 1974, the Congress considers budget totals before completing action on individual appropriations. The act requires that each standing committee of the Congress submit reports on budget estimates to the House and Senate Budget Committees by March 15; and that the Congressional Budget Office submit a fiscal policy report to the two budget committees by April 1. The Congress then adopts, no later than May 15, the first concurrent budget resolution to guide the Congress in its subsequent consideration of appropriations and revenue measures. The first budget resolution which is required to be adopted by May 15, sets targets for total receipts and for budget authority and outlays, in total and by function. Congressional consideration of requests for appropriations and for changes in revenue laws occurs first in the House of Representatives. The Appropriations Committee, through its subcommittees, studies the proposals for appropriations and examines in detail each agency's performance. The Ways and Means Committee reviews proposed revenue measures. Each committee then recommends the action to be taken by the House of Representatives. THE BUDGET SYSTEM AND CONCEPTS 357 When the appropriation and tax bills are approved by the House, they are forwarded to the Senate, where a similar review process is followed. In case of disagreement between the two Houses of the Congress, a conference committee (consisting of Members of both bodies) meets to resolve the differences. The report of the conference committee is returned to both Houses for approval. When the measure is agreed to, first in the House and then in the Senate, it is ready to be transmitted to the President in the form of an enrolled bill, for his approval or veto. After action has been completed on all money bills, the Congress adopts a second concurrent resolution containing a budget ceiling on total budget authority and outlays, and a floor for budget receipts. This resolution, which is supposed to be adopted by September 15, may retain or revise the levels set earlier in the year, and can include directives to the appropriations committees and to other committees to recommend changes in budget authority and outlays. Similarly, the second resolution may direct the appropriate committees to recommend changes in budget receipts or in the statutory limit on the public debt. Changes recommended by various committees pursuant to the second budget resolution are to be reported in a reconciliation bill (or resolution, in some cases) on which the Congress is supposed to complete action by September 25, a few days before the new fiscal year commences on October 1. After the Congress completes action on the reconciliation bill or resolution, it may not consider any spending or revenue legislation that would breach the totals specified in the second resolution. The Congress may, however, adopt a new budget resolution changing the levels set by the second resolution. If action on appropriations is not completed by the beginning of the fiscal year, the Congress may enact a "continuing resolution" to provide authority for the affected agencies to continue operations usually until their regular appropriations are enacted. Budget execution and control—Once approved, the President's budget, as modified by the Congress, becomes the financial plan for the operations of each agency during the fiscal year. Under the law, most budget authority and other budgetary resources are made available to the agencies of the executive branch through an apportionment system. The Director of OMB apportions (distributes) appropriations and other budgetary resources to each agency by time periods (usually quarters) or by activities. Obligations may not be incurred in excess of the amount apportioned. The objective of the apportionment system is to ensure the effective and orderly use of available resources and to preclude the need for additional or supplemental appropriations to meet unforeseen requirements. 358 THE BUDGET FOR FISCAL YEAR 1981 Nonetheless, changes in laws or other factors may indicate the need for additional appropriations during the year, and supplemental requests may have to be sent to the Congress. On the other hand, reserves may be established under the Antideficiency Act to provide for contingencies or to effect savings made possible by or through changes in requirements or greater efficiency of operations. Amounts may also be withheld from obligation for policy or other reasons, but all amounts withheld must be reported for Congressional review pursuant to the Impoundment Control Act of 1974. Whenever the President determines that all or part of any budget authority provided by the Congress will not be required to carry out the full objectives or scope of a program for which it was provided, or that such budget authority should be rescinded for fiscal policy or other reasons, a special message is transmitted by the President to the Congress requesting a rescission of the budget authority. The budget authority proposed by the President for rescission must be made available for obligation unless both the House and the Senate pass a rescission bill within 45 days of continuous session after receiving the President's message. Whenever the President determines that the use of budget authority provided by the Congress should be deferred (that is, temporarily withheld from obligation), the President transmits a special message to the Congress on such deferrals. Either House may, at any time, pass a resolution disapproving this deferral of budget authority, thus requiring that the funds be made available for obligation. When no congressional action is taken, deferrals may remain in effect until, but not beyond, the end of the fiscal year. If the funds remain available beyond the end of a fiscal year and continued deferral of their use is desired by the President, he must transmit a new special message to the Congress. Review and audit—This is the final phase in the budget process. The individual agencies are responsible for assuring—through their own review and control systems—that the obligations they incur and the resulting outlays follow the provisions of the authorizing legislation and appropriations, as well as other laws and regulations relating to the obligation and expenditure of funds. Agencies are assisted in this responsibility by their audit staffs. In the case of 15 major departments and agencies, audit activities are directed by statutory Inspectors General, appointed by the President. OMB reviews program and financial reports and keeps abreast of agency programs and the effort to attain program objectives. In addition, the General Accounting Office (GAO), as an agent of the Congress, regularly audits, examines, and evaluates Government programs. Its findings and recommendations are made to the THE BUDGET SYSTEM AND CONCEPTS 359 Congress, to OMB, and to the agencies concerned. The GAO also monitors the executive branch's reporting of special messages on proposed rescissions and deferrals. The GAO reports any items not reported by the executive branch and any differences that it may have with the classification (as a rescission or deferral) of withholdings included in special messages transmitted by the President. The GAO may bring civil action to obtain compliance should the President fail to report withholdings of budget authority in accordance with the Impoundment Control Act of 1974. COVERAGE OF THE BUDGET TOTALS Agencies and programs.—The budget totals cover agencies and programs (including Government corporations) owned by the Federal Government, no matter how funded, except for the following offbudget Federal entities: Rural electrification and telephone revolving fund Rural Telephone Bank Board of Governors of the Federal Reserve System Pension Benefit Guaranty Corporation Postal Service fund United States Railway Association1 Federal Financing Bank Energy Security Corporation2 The off-budget Federal entities listed above are discussed in Part 6 of the Budget. Schedules and financial statements are presented in Part IV of the Budget Appendix. Except for the Federal Reserve Board, these data are also presented in selected tables throughout the budget documents. The budget totals do not include transactions of privately owned, Government-sponsored enterprises, such as the Federal land banks and Federal home loan banks. However, privately owned Government-sponsored enterprises are discussed in Part 6 of the Budget, and financial statements are presented in Part VI of the Budget Appendix. Functional classification.3—The functional classification arrays budgetary data according to the major purpose served by the unit being classified. In accordance with the Congressional Budget Act of 1974, the Congress must pass resolutions establishing budget targets by these functional categories. 1 Investments in Conrail securities, which comprise almost all of the Association's activity after 1977, are included in the budget. * Budget authority and outlays for the Corporation will not be included in the budget totals. However, the cash requirements of the Corporation will be met by loans from the Secretary of the Treasury. Such loans will be financed by appropriations to the Secretary, and thus be reflected as budget authority and outlays within the budget totals. It is proposed that these loans be repaid by proceeds of the windfall profits tax. * A discussion of this subject is also found in Part 5 of this volume. 360 THE BUDGET FOR FISCAL YEAR 1981 The following criteria are used in establishing and in assigning activities to functional categories: • A function must have a common end or ultimate purpose addressed to an important national need. (The emphasis is on what the Federal Government seeks to accomplish rather than the means of accomplishment, what is purchased, or the clientele or geographic area served.) • A function must be of continuing national importance and the amounts attributable must be significant. • Each basic unit of classification (generally the appropriation or fund account) is classified into the single best or predominant purpose and assigned to only one function. However, when an account is large and serves more than one major purpose, it may be subdivided into two or more subfunctions. • Activities and programs are normally classified by common purpose (or function) regardless of which agencies conduct the activities. National needs presentation.—Section 601 of the Congressional Budget Act of 1974 requires that the budget for each fiscal year shall contain a presentation of budget authority, proposed budget authority, outlays, proposed outlays, and descriptive information in terms of— (1) a detailed structure of national needs which shall be used to reference all agency missions and programs; (2) agency missions; and (3) basic programs. The functional presentation of the budget is used to meet the national needs requirement. While national needs and agency missions were not specified, as such, in earlier budgets, the thrust of the budget functional classification has always been to summarize what the Government is doing, or expects to do, in terms of the ultimate purpose that the Government programs are designed to serve. To meet the requirement of law for a national needs presentation, the budget functional classification was refined to focus more sharply on the end purposes and accomplishments, and further refinements in the classification are made as circumstances warrant. Each major function is described in the context of national needs being served, and subfunctions are described in the context of major missions devoted to serving national needs. This is in keeping with the act, which states: "To the extent practicable, each agency shall furnish information in support of its budget requests in accordance with its assigned missions in terms of Federal functions and subfunctions, including mission responsibilities of component organizations, and shall relate its programs to agency missions." THE BUDGET SYSTEM AND CONCEPTS 361 In the national needs presentation, Federal programs are discussed in terms of national needs and the functional classification. In this context, a single program may be identified as serving several national needs even though classified in a single function. For example, medicare, primarily a health program, is identified as meeting the national need for improved health care. However, it also provides a form of income security by paying for medical bills and, hence, can also be identified as meeting the national need for income security. A discussion of Federal programs based solely on the functional classification system would have been limited to discussion of each program, classified by major purposes served, in only one category. The national needs presentation can be found in Part 5 ("Meeting National Needs: the Federal Program by Function"). Types of funds.—Agency activities are financed through Federal funds and through trust funds, both of which are included in the budget. Federal funds are of several types. The general fund is credited with receipts not earmarked by law for a specific purpose, and is charged with payments from appropriations and from general borrowing. Special funds contain Federal receipts earmarked for specific purposes, other than for carrying out a cycle of operations. Public enterprise (revolving) funds finance a cycle of business-type operations in which outlays generate collections, primarily from the public. Intragovernmental funds, including revolving, management, and consolidated working funds, facilitate financing operations within and between Government agencies and are credited with collections from other Government accounts. Intragovernmental revolving funds, are credited with collections earmarked by law to carry out a cycle of business-type operations within and between Government agencies. Trust funds are established to account for receipt and expenditure of monies by the Government for use in carrying out specific purposes and programs in accordance with the terms of a trust agreement or statute. These monies are not available for the general purposes of the Government. Within the category of trust funds there is a special subcategory of trust revolving funds that are credited with collections earmarked by law to carry out a cycle of business-type operations. Current expense and capital investment—The budget includes spending for both current operating expenses and capital investment, such as the purchase of lands, structures, and equipment. It also includes capital investment in the form of lending and the purchase of investments. These categories of outlays are discussed in Special Analysis D. 362 THE BUDGET FOR FISCAL YEAR 1981 BUDGET AUTHORITY AND RELATED TRANSACTIONS Budget authority.—Government agencies—whether or not they are included in the budget totals—are permitted to enter into obligations requiring either immediate or future payment of money only when they have been granted authority to do so by law. This authority is usually provided as budget authority; however, collections specifically authorized to be credited to appropriation and fund accounts, while not scored as budget authority, are also available for obligation. Budget authority permits obligations to be incurred. The amounts of budget authority requested are determined by the nature of the programs or projects being funded. For activities for which the cost depends upon the program level planned for a fiscal year, the amount of budget authority requested covers the obligations expected to be incurred during the year. Most of these Federal activities, such as operations and maintenance, entitlement programs, and continuing research programs are fully funded on an annual basis. For most projects that are separate and distinct units, particularly direct Federal major procurement and construction projects, "full funding" is requested. That is, funds are requested to cover the entire cost to complete the project at the time it is initiated, regardless of the expected time of completion. Budget authority usually takes the form of appropriations, which permit obligations to be incurred and payments to be made. Some budget authority is in the form of contract authority, which permits obligations in advance of appropriations and therefore requires a subsequent appropriation or the collection of receipts to "liquidate" (pay) these obligations. There is also authority to borrow; such budget authority permits obligations to be incurred and these obligations to be liquidated (paid) using funds that are borrowed, generally from the Treasury. Since January 1976, it has not been in order for either House of the Congress to consider any bill, with certain exceptions, that provides new borrowing or contract authority unless that bill also provides that such new spending authority will be effective only to the extent or in such amounts as are provided in appropriations acts. Most appropriations for current operations are made available for obligation only during a specified fiscal year (annual appropriationsX Some are for a specified longer period (multiple-year appropriationsX Others, including most of those for construction, some for research, and many trust fund appropriations, are made available for obligation until the amount appropriated has been expend- THE BUDGET SYSTEM AND CONCEPTS 363 ed or until the objectives have been attained (no-year appropriations). When budget authority is made available by the Congress for a specific period of time, any part that is not used for obligations during that period expires and cannot be used later. Reappropriations—congressional actions to continue availability of unobligated amounts that have expired or would otherwise expire—are counted as budget authority in the year in which the availability is extended, i.e., the year for which the appropriation action is taken. A rescission is a legislative action that cancels new budget authority or unobligated balances prior to the time the authority would otherwise have expired. Rescissions are offset against new budget authority in arriving at the total of budget authority for each year. A deferral is an executive branch action or inaction— including the establishment of reserves under the Antideficiency Act—that effectively delays the obligation or expenditure of funds. Most authority to obligate funds is enacted by the Congress in or immediately preceding the fiscal year in which it becomes available {current authority). Most current authority is granted year by year. Some budget authority in Federal funds and most budget authority in trust funds becomes available from time to time as the result of previously enacted legislation and does not require current action by the Congress {permanent authority). Such authority is "current" in the first year in which it is provided and "permanent" in succeeding years. The amount of budget authority is usually stated specifically in the legislation that makes it available (definite authority). In some cases the amount is left indefinite, to be determined by subsequent circumstances (indefinite authorityX Examples of the latter type are the appropriation for interest on the public debt, and the trust fund appropriation equal to receipts under the Federal Insurance Contributions Act (social security). Indefinite budget authority is recorded in the amount of receipts collected or estimated to be collected each year in the case of trust funds, and in the amount needed to finance obligations incurred or estimated to be incurred in the case of contract authority and authority to borrow. Obligations incurred.—Following the enactment of budget authority, obligations are incurred by Government agencies. Such obligations include the current liabilities for salaries and wages, certain contractual services, and interest; contracts for the purchase of supplies and equipment, construction and the acquisition of land; contracts to make loans; and other contractual arrangements requiring the payment of money. Outlays.—Obligations generally are liquidated by the issuance of checks or the disbursement of cash; such payments are called 364 THE BUDGET FOR FISCAL YEAR 1981 outlays. In lieu of issuing checks, obligations may also be liquidated (and outlays occur) by the maturing of interest coupons in the case of some bonds, or by the issuance of bonds or notes (or increases in the redemption value of bonds outstanding). Outlays during a fiscal year may be for payment of obligations incurred in prior years or in the same year. Such outlays, therefore, flow in part from unexpended balances of prior year budget authority and in part from budget authority provided for the year in which the money is spent.4 Total budget outlays are stated net of offsetting collections (see collections below), and exclude outlays of off-budget Federal entities. Payments for tax credits in excess of tax liabilities are treated as outlays rather than as an adjustment to budget receipts. Balances of authority.—Not all budget authority enacted for a fiscal year is obligated and paid out in the same year. The obligated balance is that portion of the budget authority that has been obligated but not yet paid. For example, in the case of salaries and wages, 1 to 3 weeks elapse between the time of obligation and the time of payment. In the case of major procurement and construction, up to several years may elapse. Obligated balances of budget authority are carried forward until the obligations are subsequently paid. In addition, in multiple-year or no-year accounts, budget authority that is still available for obligation (unobligated balances) may be carried forward for obligation in the following year.5 Therefore, a change in the amount of budget authority for a given year does not necessarily result in a similar change in either the obligations incurred or the budget outlays of that same year. A change in budget authority in any one year may have an effect on obligations for 2 or more years, and may affect budget outlays for an even longer period. Allocations between agencies.—In some cases, an agency may share in the administration of a program for which appropriations are made to another agency or to the President. This is made possible by the establishment of allocations from the "parent" account; that is the account to which the appropriation was made. Obligations incurred through such allocations are included with the parent account in the Budget (without separate identification) and in the Budget Appendix (where the total obligations of each participating agency are identified separately under the parent account). Limits on Federal credit programs— Generally, separate limitations on the amount of direct loans and on loan guarantees are 4 This process is depicted on the chart, "Relation of Budget Authority to Outlays—1981 Budget," which is in Part 6 of this volume. 5 Additional information on balances of budget authority is provided in a separate report, "Balances of Budget Authority," which is prepared by OMB shortly after the budget is transmitted. THE BUDGET SYSTEM AND CONCEPTS 365 proposed for enactment in the appropriations language related to the budget accounts that support such programs. The limitations apply to the amount of obligations to be incurred for direct loans and the amount of commitments made for loan guarantees during the year. A commitment for a loan guarantee is made when the Government enters into a guarantee agreement to become effective at such time as the lender meets stipulated preconditions. The disbursement of a direct loan (an outlay) or the actual guarantee of a loan (a contingent liability) may occur in a fiscal year subsequent to the obligation or commitment, respectively. The limitations on direct loans apply to the principal amount of the loan involved. In the case of loan guarantees, only the amount of the Government's contingent liability, which may be less than the full amount of the loan, is subject to the limitation. COLLECTIONS In general— Amounts collected during the year are classified into two major categories: • Budget receipts, which are compared with total outlays in calculating the budget surplus or deficit. • Offsetting collections, which are deducted from disbursements in calculating total outlays. Corresponding offsets are made in arriving at total budget authority and net obligations incurred. Budget receipts.—These are collections from the public that result from the exercise of the Government's sovereign or governmental powers and from contributions paid by voluntary participants in certain Federal social insurance programs. These collections, also called governmental receipts, consist primarily of tax receipts and social insurance premiums, but also include receipts from court fines, certain licenses, and deposits of earnings by the Federal Reserve System. Gifts and contributions (as distinguished from payments for services or cost-sharing deposits by State and local governments) are also counted as budget receipts. Offsetting collections.—These are collections from other Government accounts or from transactions with the public that are of a business-type or market-oriented nature. They are classified into two major categories: collections credited to appropriation or fund accounts and offsetting receipts (that is, amounts deposited in receipt accounts). In general, the distinction between these two major categories is that, normally, collections credited to appropriation or fund accounts can be used without further appropriation action by the Congress, whereas funds in receipt accounts cannot be used without being appropriated. 366 THE BUDGET FOR FISCAL YEAR 1981 Collections credited to appropriation or fund accounts occur in two circumstances: • Reimbursements—When authorized by law, amounts collected for materials or services furnished (for example, advances received from the public to pay expenses of providing information under the Freedom of Information Act) are treated as reimbursements to appropriations. These collections are netted in determining outlays from such appropriations. • Revolving funds— In the three types of revolving fundspublic enterprise, intragovernmental, and trust revolving— collections are netted against spending and outlays are reported as the net amount. Offsetting receipts generally are deducted from budget authority and outlays by function or subfunction, and by agency. Offsetting receipts are subdivided into two categories, as follows: • Proprietary receipts from the public.—These are collections from the public—deposited in receipt accounts of the general fund, special funds, or trust funds—that arise out of the business-type or market-oriented activities of the Government (for example, loan repayments, interest, sale of property and products, charges for nonregulatory services, and rents and royalties). Such collections are not counted as budget receipts, and, with one exception, are offset against total budget authority and outlays by agency and by function. The exception consists of receipts from rents and royalties from Outer Continental Shelf lands that are deducted from total budget authority and outlays for the Government as a whole rather than from any single agency or function. • Intragovernmental transactions.—These are payments into receipt accounts from Federal appropriation or fund accounts. They are treated as an offset to budget authority and outlays, rather than as a budget receipt. Intragovernmental transactions may either be intrabudgetary (where the payment and receipt both occur within the budgetary universe) or result from receipts from off-budget Federal entities in those cases where the payment is made by a Federal entity whose funds are excluded from the budget totals. Normally, intragovernmental transactions are deducted from both the outlays and the budget authority for the agency receiving the payment. However, in two cases intragovernmental transactions are not deducted from the figures of any agency or function. Instead, intragovernmental transactions that involve agencies' payments (including payments by off-budget Federal entities) as employers into employee retirement trust funds and the payment of interest to nonrevolving trust funds appear as special THE BUDGET SYSTEM AND CONCEPTS 367 deduct lines in computing total budget authority and outlays for the Government. Intrabudgetary transactions are subdivided into three categories: (1) interfund transactions, where the payment is from one fund group (either Federal funds or trust funds) to a receipt account in the other fund group; (2) Federal intrafund transactions, in those cases where the payment and receipt both occur within the Federal fund group; and (3) trust intrafund transactions, in those cases where the payment and receipt both occur within the trust fund group. OTHER TRANSACTIONS Borrowing and repayments.—Borrowing and debt repayments are not treated as receipts or outlays; if they were, the budget could be balanced simply by borrowing. This rule applies both to borrowing in the form of public debt securities and to specialized forms of borrowing—such as the sale of agency securities, and the sale of certificates representing participation in a pool of loans. However, some transactions that otherwise would be treated as borrowing are required by law to be treated as a sale of assets. This results in collections being credited to an appropriation or fund account with a corresponding reduction in outlays. Exercise of the monetary power.—Seigniorage is the profit from coining money; it is the difference between the value of coins as money and their cost, including the cost of manufacturing. Seigniorage on coins arises from the exercise of the Government's monetary powers and differs from receipts coming from the public, since there is no corresponding payment by another party. Therefore, seigniorage is excluded from receipts and treated as a means of financing a budget deficit, or as a supplementary amount to be applied to reduce debt or to increase the cash in Treasury in the years of a budget surplus. The increment (profit) resulting from the revaluation of gold as a monetary asset is treated like seigniorage. Prior to the 1980 budget, the profit from the sale of gold was treated as a proprietary receipt. However since the value of gold is determined by its value as a monetary asset rather than as a commodity, the budget now treats all of the profits on gold sales as a means of financing rather than as an offsetting collection; this change was made retroactively in the historical budget data. Liabilities in deposit fund accounts.—Certain accounts outside the budget, known as deposit funds, are established to record amounts held in suspense temporarily, or held by the Government as agent for others (for example, savings accounts for military personnel, State and local income taxes withheld from Federal employees' salaries, and payroll deductions for the purchase of 368 THE BUDGET FOR FISCAL YEAR 1981 savings bonds by civilian employees of the Government). Such transactions affect Treasury's cash balances even though they are not a part of the budget. Increases in the accounts from year to year serve as a means of financing. Exchange of casA.—The Government's deposits with the International Monetary Fund (IMF) are considered to be similar to cash assets. Therefore, the movement of money between the IMF and the Department of the Treasury is not in itself considered a receipt or an outlay, borrowing or lending. In a similar manner, the holdings of foreign currency by the Exchange stabilization fund (ESF) are considered to be cash assets. Changes in these holdings are outlays only to the extent there is a realized loss, and offsetting collections only to the extent there is a realized profit on the exchange. BASIS FOR BUDGET FIGURES In general—Outlays are stated in terms of checks issued, including cash paid in lieu of checks, net of offsetting collections received. The accrual basis is generally used for interest on the public debt held by private investors; however, interest on the public debt held by trust and other Government accounts is stated on a cash basis. When debt securities are issued at a discount (or at a premium), the difference between the sales price and the redemption value is treated as interest and is accrued evenly over time in the account that issued the securities. Data for 1979—The 1979 column of this budget generally presents the actual transactions and balances as recorded in agency accounts and as summarized in the central financial reports prepared by the Department of the Treasury. Data for 1980.—Most of the regular appropriation acts for 1980 have been enacted. (The Legislative Branch appropriation bill was enacted by reference in the first 1980 continuing resolution.) However, funding for activities covered by the Foreign Assistance, and Labor, Health, Education, and Welfare appropriation bills was provided in a continuing resolution, which is effective through September 30, 1980. Ongoing activities (with the exception of the Federal Trade Commission) for which funding was not included in appropriation bills because of a lack of authorizing legislation were also provided funding by the same 1980 continuing resolution. The expiration of the authority for the Federal Trade Commission is March 15, 1980. Supplemental appropriations will be required in certain cases for various pay raises, including those of October 1979 and additional amounts requested to meet previously unforeseen program costs. THE BUDGET SYSTEM AND CONCEPTS 369 Where the word "enacted" is used with reference to 1980, as in tables 1 and 5 of Part 9 of the Budget, the amount represents budget authority already voted by the Congress. In the case of indefinite appropriations, the enacted sums include the amounts likely to be required. Where the word "estimate" is used, the amounts include enacted budget authority and requested supplementals. Data for 1981.—This budget is complete as to the estimates for 1981. Part I of the Budget Appendix generally includes the proposed appropriation language for the various items identified in the budget. However, in some instances, estimates are included in the budget schedules without appropriation language for 1980 and 1981. For these, proposed legislation may be required, or the estimated amounts will be requested later when the requirements are known. In certain tables of the budget, these items for later transmittal and the related outlays are separately identified. Estimates of the total requirements for 1980 and 1981 include both the amounts formally requested and the amounts planned for later transmittal. Data for 1982 and 1983.—To place emphasis on longer term objectives and plans consistent with the multiyear budget planning system, this budget presents 1982 and 1983 estimates. The data for 1982 and 1983 often reflect specific Presidential policy determinations and are shown in a number of budget tables. Allowances.—Lump sum allowances are included in the tables to cover possible additional changes, such as civilian pay increases and contingencies. The allowance for civilian agency pay raises includes an estimate of the additional amounts that will be required for pay raises anticipated in October 1980 for employees of civilian agencies of the Government. A separate allowance for pay raises is shown for the military and civilian employees of the Department of Defense and is included in its figures. These increases could not be reflected in the various program appropriation requests since the applicable detailed amounts have not yet been determined. The allowance for contingencies is shown separately as required by the Congressional Budget Act. The estimates for relatively uncontrollable programs are zero because the probability of net decreases or net increases for such programs is believed to be equal. The allowances for other requirements contains estimates for potential requirements related to existing programs and for the possible enactment of legislation not specifically provided for in the budget, including welfare reform legislation. In a similar manner, allowances are shown for the Department of Defense. A separate 310-000 0 - 80 - 25 370 THE BUDGET FOR FISCAL YEAR 1981 allowance in the education, training, employment, and social services function is provided, beginning in 1982, for the President's youth initiative. Beginning in 1983 a separate allowance is provided for national health insurance. Budget authority and outlays included in the allowance section are never appropriated as undistributed allowances. These allowances merely indicate the estimated budget authority and outlays that may be requested subsequently. PART 8 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 371 EXPLANATORY NOTE This tabulation contains information on budget authority (BA) and outlays (O) for each appropriation and fund account. The budget authority in this tabulation takes account of certain transfers between appropriations. All budget authority items are definite appropriations except where otherwise indicated. Also, budget authority and outlay data for off-budget Federal entities are presented at the end of this table. In addition, there is an attribution of Federal Financing Bank (FFB) outlays to the accounts, programs, and agencies that are provided credit services by the FFB. Functional code numbers are shown for each account as a cross reference to summary tables 12 and 13 in Part 9, where the amounts are presented by functional classification. Types of funds in the budget and the deduct entries at the end of each chapter of this tabulation are explained in Part 7. Congressional action in the appropriation process occasionally takes the form of a limitation on the use of a trust fund or other fund, or of an appropriation to liquidate contract authority. Amounts for such items which do not provide budget authority, are included here in parentheses and identified in the stub column, but are not included in the totals. 372 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 373 BUDGET ACCOUNTS LISTING (in thousands of dollars) 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch Senate Federal funds General and Special Funds: Compensation and mileage of the Vice President and Senators 801 Appropriation, current Outlays Expense allowances of the Vice President, President Pro Tempore, Majority and Minority Leaders and Majority and Minority Whips 801 Appropriation, current Outlays Salaries, officers and employees 801 Appropriation, current BA 0 6,541 6,425 6,827 6,882 7,310 7,310 BA 0 60 28 45 45 45 BA 132,261 Outlays 0 Office of the Legislative Counsel of the Senate 801 Appropriation, current BA 110,650 125,759 eg 058 14&62 Outlays Office of Senate Legal Counsel Appropriation, current Outlays Senate policy committees Appropriation, current 0 893 800 1,750 350 350 500 1,462 D Outlays Automobiles and maintenance Appropriation, current Outlays Inquiries and investigations Appropriation, current 0 BA 0 64 59 Outlays Miscellaneous items Appropriation, current 801 BA 39,086 0 27,342 BA O 961 500 1,562 1,562 70 32,600 1,725 38,938 36,000 143 109 36,000 84 142 117 0 70 BA 34,673 39,195 z>2 117 0 22,601 45,552 30,776 BA 0 8 6 7 7 30,776 BA 0 39 - 4 40 82 4077 40 BA 0 400 206 194 801 801 801 Public Enterprise Funds: See footnotes at end of table. 65 65 801 801 Senate restaurant fund (revolving fund) Outlays 100 1,776 801 Outlays Folding documents Appropriation, current Outlays Postage stamps Appropriation, current... Outlays Stationery (revolving fund) Appropriation, current Outlays Congressional use of foreign currency, Senate Appropriation, current Outlays 1,248 135,948 961 801 BA 135,948 899 "36 975 801 BA 0 45 801 0 62 T H E BUDGET FOR FISCAL Y E A R 1981 374 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. Senate—Con. Recording studio (revolving fund) Outlays Senate barber shops (revolving fund) Outlays 801 0 -48 801 0 Total Federal funds Senate - 5 BA 0 215,918 169,454 BA 27,699 217,287 241,870 213,336 213,336 27,690 29,254 House of Representatives Federal funds General and Special Funds: Compensation of Members Appropriation, current 801 D Outlays Mileage of Members Appropriation, current Outlays House leadership offices Appropriation, current 0 27,403 1,523 29,213 29,254 801 BA 0 210 187 210 210 210 210 801 BA 2,222 2,222 2,365 ^ 143 Outlays Salaries, officers and employees Appropriation, current 801 0 Outlays Committee employees Appropriation, current 801 1,966 2,143 2,128 BA 29,479 29,613 o j 951 32,927 0 28,457 28^603 29,634 BA 24,705 24,705 27,000 D Outlays 0 Committee on Appropriations (Studies and Investigations) 801 Appropriation, current BA 1,700 23,924 25,624 25,624 2,904 2,950 2,856 °20 Outlays Committee on the Budget (Studies) Appropriation, current Outlays Office of the Law Revision Counsel Appropriation, current 0 2,432 2,695 2,570 801 BA 0 261 .151 BA 449 277 249 245 220 465 510 801 *>28 Outlays Office of the Legislative Counsel Appropriation, current 0 455 474 459 801 BA 1,939 1,987 2,097 "99 Outlays Members' clerk hire Appropriation, current 0 1,472 1,887 BA 117,791 118,308 D Outlays See footnotes at end of table. 1,887 801 0 115,991 126,808 g 5QQ 1241612 124,612 375 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. House of Representatives—Con. Allowances and expenses Appropriation, current 801 BA 60,741 62,377 7,426 1,029 59,080 A 7,426 73,152 76 76 42,100 2,055 42,000 46,500 -354 -354 -354 -19 -19 -19 -20 -20 -20 - 7 - 7 - 7 A c Outlays Stationery (revolving fund) Outlays Special and select committees Appropriation, current 0 62,223 0 76 65,837 801 801 BA 46,762 0 Outlays 0 Congressional use of foreign currency, House of Representatives 801 Appropriation, current BA Outlays 0 Public Enterprise Funds: House of Representatives restaurant fund (revolving fund) 801 Outlays 0 Recording studio (revolving fund) 801 Outlays 0 Beauty shop (revolving fund) 801 Outlays 0 House barber shops (revolving fund) 801 Outlays 0 Office of the attending physician (revolving fund) 801 Outlays 0 Total Federal funds House of Representatives 38,908 41,850 800 477 - 1 z i BA O 315,962 303,721 337,378 323,891 343,924 323,960 BA 2,353 2,150 O 1,773 2,749 °116 3,694 Joint Items Federal funds General and Special Funds: Joint Economic Committee .Appropriation, current Outlays Joint Committee on Printing Appropriation, current . Outlays American Indian Policy Review Commission . Outlays Statements of appropriations, Senate Appropriation, current Outlays Joint Committee on Taxation Appropriation, current Outlays See footnotes at end of table. 801 2,150 801 BA O 716 688 864 1267 794 794 801 O 3 BA O 6 13 13 13 13 BA 2,375 2,670 O 2,290 2,455 D 134 2,478 801 801 2,403 T H E BUDGET FOR FISCAL Y E A R 1981 376 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code Legislative 1980 estimate 1981 estimate Branch—Con. Joint Items—Con. Office of the Attending Physician Appropriation, current Outlays General expenses, Capitol police Appropriation, current Outlays Capitol Police Board Appropriation, current Outlays Education of pages Appropriation, current Outlays Official mail costs Appropriation, current Outlays Capitol Guide Service Appropriation, current 801 BA 0 465 429 459 413 504 454 BA 0 750 599 810 729 834 751 BA 0 1,421 1,372 1,263 1,137 1,352 1,217 BA 0 217 196 220 220 258 258 801 801 801 801 BA 0 37,870 50,707 50,707 36,633 36,633 801 Outlays Statements of appropriations, House of Representatives 801 Appropriation, current Outlays Total Federal funds Joint Items BA 593 0 527 613 z>42 655 664 664 BA 0 6 13 7 13 7 BA 0 8,902 45,747 60,458 61,320 45,885 45,344 BA 11,368 12,117 13,544 Congressional Budget Office Federal funds General and Special Funds: Salaries and expenses Appropriation, current 801 M14 Outlays 0 10,139 12,000 13,100 BA 2,490 3,401 0 2,278 2,836 c 30 ° 142 2,998 210 443 210 210 Architect of the Capitol Federal funds General and Special Funds: Office of the Architect of the Capitol: Salaries Appropriation, current Outlays Contingent expenses Appropriation, current Outlays Capitol buildings Appropriation, current Outlays See footnotes at end of table. 801 3,394 801 BA 0 210 207 801 BA 6,380 7,394 c 226 0 6,842 8,029 °82 8,675 8,681 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 377 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. Architect of the Capitol—Con. Capitol grounds Appropriation, current 801 BA 2,644 4,062 c 2,243 100 D 1 Outlays West central front of the Capitol Outlays Master plan for future development of the grounds and related areas Outlays Acquisition of property as an addition to the grounds Outlays Senate office buildings Appropriation, current 0 2,780 3,466 0 181 254 0 77 103 2,781 801 Capitol 801 Capitol 801 36 0 801 BA 10,983 11,263 c 13,818 11,577 Outlays 0 Construction of an extension to the New Senate Office Building 801 Appropriation, current BA Outlays 0 Extension of additional Senate Office Building site 13,496 498 12,170 52,583 22,402 16,527 32,504 801 78 Outlays 0 Acquisition of property as a site for parking facilities for the United States Senate 801 Outlays 0 Plans for garage and related facilities for the United States Senate 801 0 Outlays Senate garage 801 BA 49 196 171 c Outlays House office buildings O 166 206 189 20,843 18,484 18,010 801 BA c 1,500 ... ... 1,300 200 14,181 17,629 801 BA 13,355 c Outlays Expansion of facilities, Capitol Power Plant Outlays See footnotes at end of table. 18,620 81 BA 0 700 22,561 20,157 O Outlays Acquisition of property, construction, and equipment, additional House Office Building 801 Outlays Installation of solar collectors in House office buildings 801 Outlays Capitol Power Plant 186 10 O 11,149 O 19 801 125 14,427 228 ... 17,514 THE BUDGET FOR FISCAL YEAR 1981 378 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. Architect of the Capitol—Con. Modifications and enlargement, Capitol Power Plant 801 Outlays 0 Alterations and improvements, buildings and grounds, to provide facilities for the physically handicapped 801 Outlays 0 Structural and mechanical care, Library buildings and grounds 801 Appropriation, current BA Outlays 0 Library of Congress James Madison Memorial Building 801 Outlays O Total Federal funds Architect of the Capitol 4,096 3,434 143 937 6,027 1,000 2,942 4,410 c 174 11,437 2,428 5,100 11,460 14,397 8,328 3,676 BA 0 61,798 117,433 75,287 93,024 108,284 118,426 BA 94,182 102,380 110,895 Library of Congress Federal funds General and Special Funds; Salaries and expenses Appropriation, current 503 c 379 " 4,600 Outlays Copyright Office.- Salaries and expenses Appropriation, current 0 89,039 112,296 110,571 8,622 9,251 10,612 376 BA "781 Outlays 0 National Commission on New Technological Uses of Copyrighted Works: Salaries and expenses 376 Outlays 0 Congressional Research Service: Salaries and expenses 801 Appropriation, current BA 8,479 10,636 43 25,553 14 27,090 D Outlays 0 Books for the blind and physically handicapped: Salaries and expenses 503 Appropriation, current BA 10,574 31,589 1,600 24,607 29,081 31,673 34,736 34,337 35,290 c 13 ° 183 Outlays O Collection and distribution of library materials (special foreign currency program) 503 Appropriation, current BA Outlays See footnotes at end of table. O 27,693 42,495 34,829 3,860 3,563 3,980 3,246 "17 4,369 4,073 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 379 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. Library of Congress—Con. Furniture and furnishings Appropriation, current Outlays Payments to copyright owners Appropriation, permanent, indefinite Outlays Oliver Wendell Holmes devise fund Appropriation, permanent, indefinite Outlays 503 BA 0 7,694 870 4,160 4,306 21,845 4,511 15,195 17,293 17,280 -663 21,808 17,266 376 BA 0 503 BA 0 3 12 23 25 3 20 Intragovernmental Funds: Consolidated working fund Outlays 503 0 -205 BA O 6,680 5,882 5,082 6,069 5,339 4,441 Total Federal funds Library of Congress BA 0 189,845 156,557 202,380 240,692 213,809 214,950 Total Trust funds Library of Congress BA 0 6,680 6,069 5,882 5,339 5,082 4,441 BA 0 11,476 13,646 22,145 12,774 13,398 21,550 BA 0 73,961 74,500 89,978 65,203 76,434 81,400 BA 23,613 23,000 A 790 ° 401 26,200 0 23,547 23,265 ^ 600 Trust funds Gift and trust fund accounts Appropriation, permanent, indefinite Outlays -1,877 1,433 503 Government Printing Office Federal funds General and Special Funds: Printing and binding 801 Appropriation, current Outlays Congressional printing and binding 801 Appropriation, current Outlays Office of Superintendent of Documents: Salaries and expenses 806 Appropriation, current Outlays Acquisition of site and general plans and designs of buildings 806 Appropriation, current BA Outlays 0 Project planning 806 Outlays 0 A 26,062 190 20,869 20,869 41 Intragovernmental Funds: Government Printing Office revolving fund Outlays 806 Total Federal funds Government Printing Office... See footnotes at end of table. O BA 0 11,908 -2,047 -2,050 109,050 113,432 112,337 111,691 159,192 148,021 THE BUDGET FOR FISCAL YEAR 1981 380 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. General Accounting Office Federal funds General and Special Funds: Salaries and expenses Appropriation, current 801 Outlays BA 185,906 0 179,613 200,300 D 8,767 207,466 218,070 216,426 United States Tax Court Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 Outlays Construction Outlays 752 Trust funds Tax Court judges survivors annuity fund Appropriation, permanent, indefinite Outlays 602 BA 8,803 0 8,388 9,391 D 360 9,681 10,397 10,353 0 221 5 BA 0 109 49 123 59 128 59 9,751 9,686 10,397 10,353 Total Federal funds United States Tax Court BA 0 8,803 8,609 Total Trust funds United States Tax Court BA 0 109 49 123 59 128 59 Commission on Security and Cooperation in Europe: Salaries and expenses 801 Appropriation, current BA Outlays 0 Botanic Garden: Salaries and expenses 801 Appropriation, current BA 521 356 264 415 450 471 1,448 1,464 c 70 1,528 2,092 1,885 471 490 489 Other Legislative Branch Agencies Federal funds General and Special Funds: Outlays Copyright Royalty Tribunal: Salaries and expenses 0 1,440 376 Appropriation, current BA 805 Outlays O Cost-Accounting Standards Board: Salaries and expenses 801 Appropriation, current BA Outlays 0 499 488 1,850 1,063 1,300 1,280 See footnotes at end of table. z>19 961 1,004 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 381 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Legislative Branch—Con. Other Legislative Branch Agencies—Con. Temporary Commission on Financial Oversight of the District of Columbia: Salaries and expenses 801 BA 500 7,500 A Outlays O 5,130 BA 9,700 6,500 5,040 1,500 942 * 3,500 11,000 14,200 A Office of Technology Assessment: Salaries and expenses 801 Z>284 O Outlays Trust funds Office of Technology Assessment: Contributions and donations 801 BA Appropriation, permanent, indefinite 0 ... Outlays 9,211 11,097 14,273 6 5 5 5 5 Total Federal funds Other Legislative Branch BA 0 Total Trust funds Other Legislative Branch Agencies Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Intrafund transactions BA 0 ... BA 0 803 BA 0 902 BA 0 Proprietary receipts from the public 376 BA 0 503 BA 5 5 5 5 1,129,376 1,300,494 1,311,637 1,097,995 1,338,248 1,326,480 -726 —700 -700 -548 -1,316 -1,283 -14,651 -6,510 -6,525 BA 1,105,716 1,291,371 1,302,481 1,074,335 1,329,125 1,317,324 BA 6,795 6,010 5,215 6,118 5,403 4,505 -3,713 -3,700 -3,700 0 503 BA 0 6 -7,019 0 See footnotes at end of table. 22,564 -648 O Deductions for offsetting receipts: Proprietary receipts from the public 18,193 21,348 -597 801 BA Trust funds: (As shown in detail above) 21,872 17,699 -716 0 Total Federal funds 21,824 THE BUDGET FOR FISCAL YEAR 1981 382 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Legislative Branch—-Con. Summary—Con. 902 BA 0 Total Trust funds Total Legislative Branch -180 -180 -180 BA 2,902 2,130 0 2,225 1,523 625 BA 1,108,618 1,293,501 1,303,816 0 1,076,560 1,330,648 1,317,949 9,690 10,250 1,335 The Judiciary Supreme Court of the United States Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 BA 11,140 "466 Outlays Care of the buildings and grounds Appropriation, current 0 8,165 BA 1,475 10,486 10,840 2,157 1,526 752 c Outlays 0 Total Federal funds Supreme Court of the United States BA 0 1,571 48 2,550 1,888 11,165 12,921 12,666 9,736 13,036 12,728 1,121 1,719 1,839 Court of Customs and Patent Appeals Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 BA "93 Outlays 0 1,081 1,771 BA 3,095 4,850 1,838 Customs Court Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 Outlays 0 2,999 BA 0 "241 5,036 4,976 5,040 3,570 5,230 5,598 3,374 5,348 5,591 Court of Claims Federal funds General and Special Funds: Salaries and expenses Appropriation, current.: Outlays See footnotes at end of table. 752 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 383 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate The Judiciary—Con. Courts of Appeals, District Courts, and other Judicial Services Federal funds General and Special Funds: Salaries of judges Appropriation, current 752 BA 41,458 48,500 6,300 54,852 38,972 54,261 54,840 BA 175,495 195,700 * 13,428 216,688 0 169,176 207,320 215,688 BA 0 24,800 26,000 26,000 21,607 26,463 26,554 BA 0 24,750 34,000 36,937 28,844 35,783 36,910 BA 0 35,514 37,800 42,034 31,447 41,859 41,634 BA 19,441 22,000 23,851 0 18,539 22J27 23,804 BA 36,658 58,500 65,299 0 38,117 60^335 65,117 3,500 3,645 3,150 3,630 0 Outlays Salaries of supporting personnel Appropriation, current Outlays Defender services Appropriation, current Outlays Fees of jurors and commissioners Appropriation, current Outlays Travel and miscellaneous expenses Appropriation, current Outlays Salaries and expenses of magistrates Appropriation, current Outlays . Bankruptcy courts, salaries and expenses Appropriation, current Outlays Services for drug dependent offenders Appropriation, current Outlays Space and facilities Appropriation,current Outlays Furniture and furnishings Appropriation, current Outlays Speedy trial planning Outlays Pretrial services agencies, The Judiciary Appropriation, current Outlays Special rail reorganization court Outlays 0 752 752 752 752 752 752 752 BA 0 752 BA 0 106,900 117,500 26364 90,434 115,245 125,038 BA 0 4,200 752 > l — > m 752 0 77 193 224 752 BA 0 5,000 3,935 3,039 564 752 0 Total Federal funds Courts of Appeals, District Courts, and other Judicial Services BA See footnotes at end of table. 2 200 UO 474,216 287 567.425 M89 595,670 THE BUDGET FOR FISCAL YEAR 1981 384 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate The Judiciary—Con. Administrative Office of the United States Courts Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 Outlays BA 12,899 0 12,349 15,100 "747 15,621 16,906 15,847 15,621 16,906 16,795 8,500 9,376 16,795 Intragovemmental Funds: Consolidated working fund Outlays 752 0 32 Total Federal funds Administrative Office of the United States Courts BA 0 12,899 12,381 Federal Judicial Center Federal funds General and Special Funds: Salaries and expenses Appropriation, current 752 BA 8,279 "202 Outlays 0 8,495 8,540 9,199 Bicentennial Expenses, The Judiciary Federal funds General and Special Funds: Bicentennial activities Outlays 806 0 113 135 138 7,029 1,920 8,210 2,260 9,400 2,300 Judiciary Trust Funds Trust funds Judicial survivors' annuities fund Appropriation, permanent, indefinite Outlays 602 BA 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public BA 0 750 BA Q 902 BA Q Total Federal funds See footnotes at end of table. BA 0 514,345 479,437 617,267 622,389 647,091 648,821 -if641 -lt648 -1,648 ™ -52 512,652 477,744 r* -60 rr -65 615,559 620,681 645,378 647,108 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 385 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate The Judiciary—Con. Summary—Con. Trust funds: (As shown in detail above) BA 0 T o y The Judiciary BA 0 7,029 1,920 519,681 479,664 8,210 2,260 623,769 622,941 9,400 2,300 654,778 649,408 Executive Office of the President Compensation of the President Federal funds General and Special Funds: Compensation of the President Appropriation, current Outlays 802 BA 0 250 250 250 250 250 250 The White House Office Federal General and Special Funds: Salaries and expenses Appropriation, current 802 Outlays BA 17,163 20,627 15,909 18,210 "763 18,855 0 BA 2,683 2,957 C 3,204 0 2,667 "72 3,110 3,204 20,526 Executive Residence at the White House Federal funds General and Special Funds: Operating expenses Appropriation, current 802 Outlays 81 Official Residence of the Vice President Federal funds General and Special Funds: Operating expenses Appropriation, current Outlays 802 BA 0 129 119 233 214 168 183 BA 1,315 1,M 1,551 0 1,207 1,426 1,510 Special Assistance to the President Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays See footnotes at end of table. 802 THE BUDGET FOR FISCAL YEAR 1981 386 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional ode 1980 estimate 1981 estimate Executive Office of the President—Con. Council of Economic Advisers Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 Outlays BA 2,042 2,075 2,197 0 1,822 2,296 2,193 BA 0 3,026 2,955 3,126 3,126 0 1,296 702 BA 0 3,026 4,251 3,126 3,828 d 27 Council on Environmental Quality and Office of Environmental Quality Federal funds General and Special Funds: Council on Environmental Quality and Office of Environmental Quality 802 Appropriation, current Outlays 3,436 3,436 Intragovernmental Funds: Consolidated working fund Outlays 802 Total Federal funds Council on Environmental Quality and Office of Environmental Quality 3,436 3,436 Council on International Economic Policy Federal funds General and Special Funds: Salaries and expenses 802 JOutlays 0 -1 Council on Wage and Price Stability Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 BA 4,502 8,483 * 9,770 fl Outlays... 0 3,084 BA 2,544 516 * 464 9,362 s 491 9,845 ^25 2,600 2,968 Domestic Policy Staff Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 D 0ut| 122 ays See footnotes at end of table. 0 2,757 2,815 2,984 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 387 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Executive Office of the President—Con. National Security Council Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 BA Outlays 3,525 3,557 3,725 0 3,451 "101 3,650 3,725 BA 7,462 7,920 12,116 0 6,914 7,302 10,930 32,400 1,499 32,478 26,871 32,205 31,004 3,000 3,000 2,700 3,042 3,000 2,700 32,044 36,899 35,178 29,913 35,205 33,704 BA 0 31,919 36,899 35,178 29,788 35,205 33,704 BA 2,496 2,625 "87 2,948 0 3,097 3,000 3,000 Office of Administration Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 Outlays "185 Office of Management and Budget Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 BA 29,044 D Outlays 0 Office of Federal Procurement Policy: Salaries and expenses 802 Appropriation, current BA Outlays 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public BA 0 802 Total Office of Management and Budget BA Office of Science and Technology Policy Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays See footnotes at end of table. 802 THE BUDGET FOR FISCAL YEAR 1981 388 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Executive Office of the President—Con. Office of the United States Trade Representative Federal funds General and Special Funds: Salaries and expenses Appropriation, current 802 BA 2,707 9,271 8,158 "260 9,009 3,035 8,168 196 134 1,044 138 1,240 272 BA 81,888 101,241 107,409 0 79,715 100,244 104,524 Outlays.. Special Action Office for Drug Abuse Prevention Federal funds General and Special Funds: 554 Salaries and expenses Outlays Special fund for drug abuse Outlays 554 Total Federal funds Special Action Office for Drug Abuse Prevention 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 802 BA 0 Total Executive Office of the President -1P5 BA 81,763 101,241 107,409 0 79,590 100,244 104,524 Funds Appropriated to the President Appalachian Regional Development Programs Federal funds General and Special Funds: Appalachian regional development programs Appropriation, current 452 BA 378,700 170,000 356,500 r Outlays 198,800 0 303,046 300,800 331,000 0 1,291 1,200 747 BA 0 378,700 356,500 368,800 304,337 302,000 331,747 Public Enterprise Funds: Appalachian housing fund Outlays 452 Total Federal funds Appalachian Regional Development Programs See footnotes at end of table. THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 389 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. Disaster Relief Federal funds General and Special Funds: Disaster relief Appropriation, current 453 Outlays Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts-. Proprietary receipts from the public BA 386,772 0 276,992 BA 0 386,772 276,992 A A 193,600 314,000 241,397 136,000 507,600 377,397 375,570 A 250,226 178,000 375,570 428,226 450 BA 902 Total Disaster Relief -300 BA 99 0 BA 0 386,772 276,992 -22 507,278 377,075 375,248 427,904 ' 146,500 '140,375 '266,000 Energy Security Programs Trust funds Energy security trust fund: (Energy supply) 271 (Appropriation, current) BA (Outlays) 0 (Energy conservation) 272 (Appropriation, current) BA (Outlays) 0 (Energy emergency preparedness) 274 (Appropriation, current) BA (Outlays) 0 (Ground transportation) 401 (Appropriation, current) BA (Outlays) i ' 0 (Public assistance and other income supplements) 604 (Appropriation, current) BA (Outlays) ' 0 Total Energy security trust fund Summary Federal funds: Deductions for offsetting receipts: Proprietary receipts from the public Total Federal funds See footnotes at end of table. BA 0 271 0 BA BA 0 '245,875 ' 111,000 ' 14,450 ' 415,000 '378,650 ' 8,600 3,100 '15,100 '11,200 ' U76>0?? '100,000 ' 1,500,000 '617,000 ' 1,600,000 '1,600,000 '2,400,000 '2,400,000 3,142,100 1,857,925 4,596,100 3,652,725 y r -8,800 -8,800 -8,800 THE BUDGET FOR FISCAL YEAR 1981 390 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Funds Appropriated to the President—Con. Energy Security Programs—Con. Trust funds: (As shown in detail above) Total Energy Security Programs BA 3,142,100 4,596,100 0 1,857,925 3,652,725 BA 3,142,100 4,587,300 1,857,925 3,643,925 0 Unanticipated Needs Federal funds General and Special Funds: Unanticipated needs Appropriation, current Outlays 802 BA 0 1,450 1,000 1,000 1,029 1,293 1,000 Expenses of Management Improvement Federal funds General and Special Funds: Expenses of management improvement Outlays 802 427 0 Foreign Assistance International Security Assistance Federal funds General and Special Funds: Military assistance Appropriation, current 152 BA 83,375 BA 0 125,800 110,200 K Reappropriation Outlays International military education and training Appropriation, current 152 139,641 195,000 BA BA 0 150,000 28,400 27,900 Reappropriation Outlays Military assistance, South Vietnamese Forces Outlays Foreign military credit sales Appropriation, current 105,000 * 32,500 5,705 27,522 25,500 27,600 152 0 500 - 2 152 BA 1,024,500 659,000 * 714,000 B Outlays Assistance for relocation of facilities in Israel Appropriation, current Contract authority, permanent, indefinite Outlays See footnotes at end of table. 0 640,259 BA BA 0 800,000 10,000 540,000 515,000 152 235,556 31,300 411,000 318,000 391 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. Foreign Assistance—Con. International Security Assistance—Con. Economic support fund Appropriation, current 151 s BA Indefinite BA Reappropriation Outlays BA 0 2,281,500 100,000 * 80,000 1,927,000 * 2,080,500 Peacekeeping operations Appropriation, current, indefinite 1,728,773 23,953 1,857,000 * 100,000 ^ 50,000 1,994,000 *30,000 151 Reappropriation Outlays BA 27,243 BA 0 11,758 25,940 33,000 32,000 0 -1,849 -2,300 -1,837 6,217,758 (8,544,542) 7,110,679 9,000,000 (8,300,000) 9,500,000 (9,500,000) 9,500,000 4,387,781 3,195,209 2,957,000 2,591,584 3,209,700 3,064,763 -246,505 -245,000 21,100 * 25,000 Public Enterprise Funds: Liquidation of foreign military sales fund Outlays 152 Trust funds Advances, foreign military sales 155 Contract authority, permanent, indefinite BA Liquidation of contract authority, permanent Outlays 0 Summary Federal funds: (As shown in detail above) BA 0 Deductions for offsetting receipts: Proprietary receipts from the public 152 BA 0 902 BA 0 Total Federal funds Trust funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public -72,037 -75,000 9,500,000 245,000 -75,000 BA 4,069,239 2,875,209 2,637,000 0 2,273,042 2,889,700 2,744,763 BA 6,217,758 9,000,000 9,500,000 0 7,110,679 9,500,000 9,500,000 BA -8,544,542 -8,300,000 -9,500,000 155 0 Total Trust funds BA -2,326,784 700,000 -1,433,863 1,200,000 Total International Security Assistance BA 1,742,455 3,575,209 2,637,000 839,179 4,089,700 2,744,763 See footnotes at wwl nf tihla 0 0 THE BUDGET FOR FISCAL YEAR 1981 392 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. Foreign Assistance—Con. International Development Assistance Multilateral Assistance Federal funds General and Special Funds: Contribution to the International bank for reconstruction and development 151 Appropriation, current BA Outlays 0 Contribution to the International development association 151 Appropriation, current BA 0 Outlays Contribution to the Internationa! finance corpora151 tion BA Appropriation current 0 Outlays Contribution to the Inter-American development bank 151 Appropriation, current BA 163,079 825,777 20,000 16,298 82,578 20,000 1,258,000 1,092,000 375,621 500,000 40,045 33,448 25,599 22,299 763,728 869,556 K 1,080,000 571,600 22,299 143,023 * 226,547 Outlays Contribution to the Asian development bank Appropriation, current 0 235,711 267,000 BA 265,000 371,077 250,921 151 25,196 * 111,250 Outlays Contribution to the African development fund Appropriation, current 0 29,369 51,664 BA 25,000 41,667 77,974 151 * 41,667 Outlays 0 Contribution to the African development bank 151 Appropriation, current BA Outlavs 0 Payment to the International Fund for Agricultural Development 151 Outlays 0 International organizations and programs 151 Appropriation, current BA 4,800 2,000 K 40,000 20,000 260,000 261,640 200,102 243,365 246,503 BA 0 2,774,852 3,495,165 1,909,720 882,700 1,188,906 1,252,084 BA 1,132,000 1,218,680 837,449 881,227 K Outlays 0 Total Federal funds Multilateral Assistance.. 17,987 17,987 244,050 Bilateral Assistance Federal funds General and Special Funds: Functional development assistance program Appropriation, current Outlays See footnotes at end of table. 151 * 1,414,202 0 1,017,410 393 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 Funds Appropriated to the President—Con. Foreign Assistance—Con. International Development Assistance—Con. 151 Sahel development program Appropriation, current Outlays Payment to the Foreign Service retirement and disability fund 153 Appropriation, current Indefinite Outlays 75,000 100,000 0 15,923 34,482 BA BA 0 25,676 25,676 25,296 25,676 25,676 25,296 A * 113,442 52,066 1,020 * 1,020 American schools and hospitals abroad Appropriation, current, indefinite 151 BA 25,000 20,000 0 26,047 18,032 BA 37,157 71,800 Reappropriation BA Outlays 0 Operating expenses of the International Development Cooperation Agency 151 Appropriation, current BA 9,634 "15,000 Outlays International disaster assistance Appropriation, current 17,820 151 * 25,000 77,305 53,987 263,000 252,500 Outlays 0 Institute for Scientific and Technological Cooperation 151 Appropriation, current BA 43,077 D 8,587 269,794 285,161 229,810 23,750 * 95,000 Outlays Miscellaneous appropriations Outlays 0 151 7,000 32,000 0 20,958 20,209 13,018 0 20,524 33,427 13,537 0 2,787 2,764 2,790 0 -64,132 -55,706 —51,827 10,000 15,964 17,000 9,829 14,724 16,512 Public Enterprise Funds: Development loans-revolving fund Outlays Housing and other credit guaranty programs Outlays Overseas Private Investment Corporation Outlays Inter-American Foundation Appropriation, current, indefinite Outlays 151 151 151 151 BA 0 Intragovernmental Funds: Advance acquisition of property-revolving fund 151 Outlays 0 Office of the Inspector General of Foreign Assistance 151 Outlays 0 Consolidated working fund 151 Outlays 0 See footnotes at end of table. 286 139 -3 394 THE BUDGET FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. Foreign Assistance—Con. international Development Assistance—Con. Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays 151 BA 0 27,205 26,981 21,674 21,674 25,000 25,000 Total Federal funds Bilateral Assistance BA 0 1,566,967 1,179,141 1,748,477 1,330,093 1,998,740 1,466,860 Total Trust funds Bilateral Assistance BA 0 27,205 26,981 21,674 21,674 25,000 25,000 BA 0 4,341,819 2,061,841 5,243,642 2,518,999 3,908,460 2,718,944 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 150 BA q —854 —294 — 2B4 151 qA -314,388 -327,673 -373,867 902 ®A -270,616 -363,925 -393,869 BA 0 3,755,961 1,475,983 4,551,750 1,827,107 3,140,430 1,950,914 BA 0 27,205 26,981 21,674 21,674 25,000 25,000 Total Federal funds Trust funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public nn. 151 BA _ Total Trust funds BA 0 Total International Development Assistance BA 0 3,755,962 1,475,760 4,551,750 1,827,107 BA 38,500 48,758 0 46,702 40,543 2 5 m 1 -223 3,140,430 1,950,914 International Narcotics Control Assistance Federal funds General and Special Funds: International narcotics control Appropriation, current 151 K Outlays See footnotes at end of table. 38,613 42,448 395 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1981 estimate 1980 estimate Funds Appropriated to the President—Con. Foreign Assistance—Con. Contingencies Federal funds General and Special Funds: President's foreign assistance contingency fund 151 Appropriation, current, indefinite Outlays Total Federal funds Foreign Assistance.. Total Trust funds Foreign Assistance BA 3,000 0 3,031 1,470 BA 7,866,700 7,475,717 5,816,043 0 3,798,758 4,758,820 4,738,125 , BA -2,326,783 700,000 0 — 1,434,086 1,200,000 BA 99,179 105,000 °795 118,800 0 93,900 103,865 115,552 . Peace Corps Federal funds General and Special Funds: Operating expenses Appropriation, current.. 151 Outlays Trust funds Miscellaneous trust funds Appropriation, permanent, indefiniteOutlays 151 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 481 248 92 248 248 BA 99,179 105,795 118,800 0 93,900 103,865 115,552 BA ... 0 150 BA -9 -55 -55 0 Total Federal funds.. Trust funds: (As shown in detail above).. BA 99,170 105,740 118,745 0 93,891 103,810 115,497 481 248 248 248 BA 92 0 Deductions for offsetting receipts: Proprietary receipts from the public 151 BA o Total Trust funds See footnotes at end of table. 111 BA - 7 40 108 92 -122 108 BA 99,170 105,851 118,853 0 93,983 103,688 115,605 0 Total Peace Corps.... -370 ••• T H E B U D G E T FOR FISCAL YEAR 1981 396 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. International Commodity Agreements Federal funds Genera! and Special Funds: Contributions to international buffer stocks 155 Appropriation, current BA Outlays 0 K 88,000 5,000 K Israel-United States Binational Agreements Federal funds General and Special Funds: Israel-United States binational agricultural research and development fund 352 Appropriation, current BA Outlays 0 40,000 40,000 Petroleum Reserves Federal funds General and Special Funds: Petroleum reserves: (Energy supply) (Outlays) 0 67,568 161,442 0 67,568 161,442 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 271 271 BA -525,208 742,680 BA -525,208 742,680 0 -457,640 904,122 BA 9,677,201 9,458,504 7,856,243 0 5,486,984 6,717,136 6,707,680 0 Total Petroleum Reserves Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 150 BA 0 151 BA 0 152 BA 0 271 BA 0 -863 -314,388 -246,505 -525,208 327,673 -245,000 0 BA 0 See footnotes at end of table. -245,000 J 450 BA Total Federal funds -373,867 742,680 0 0 -349 -349 BA 902 BA . -342,653 - 8,800 -300 -300 -438,947 -468,891 8,247,584 9,188,915 6,759,036 4,057,367 6,447,547 5,610,473 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 397 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Funds Appropriated to the President—Con. Summary—Con. Trust funds: (As shown in detail above) BA 0 Deductions for offsetting receipts: Proprietary receipts from the public 6,244,963 12,164,255 14,121,348 7,137,752 11,379,847 13,177,973 151 BA O 155 BA 0 -27,204 -22,044 -25,140 -8,544,542 -8,300,000 -9,500,000 BA 0 -2,326,783 3,842,211 4,596,208 -1,433,994 3,057,803 3,652,833 5,920,801 13,031,126 11,355,244 2,623,373 9,505,350 9,263,306 Total Trust funds BA 0 Total Funds Appropriated to the President.. Department of Agriculture Office of the Secretary Federal funds General and Special Funds: Office of the Secretary Appropriation, current 352 Outlays BA 4,395 4,470 °409 5,249 0 4,366 4,770 5,139 19,029 19,457 23,761 Departmental Administration Federal funds General and Special Funds: Departmental administration Appropriation, current 352 «... BA C22 D Outlays 0 19,364 0 14,174 0 15,872 BA 0 BA 32,130 1,086 20,166 23,305 19,029 20,565 23,761 49,410 20,166 23,305 34,474 1,223 38,584 Intragovernmental Funds: Working capital fund Outlays Miscellaneous consolidated working funds Outlays 352 352 Total Federal funds Departmental Administration. Office of the Inspector General Federal funds General and Special Funds: Office of the Inspector General Appropriation, current 352 0 G Outlays See footnotes at end of table. 0 32,487 477 35,557 37,955 THE BUDGET FOR FISCAL YEAR 1981 398 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Agriculture—Con. Office of the General Counsel Federal funds General and Special Funds: Office of the General Counsel Appropriation, current 352 Outlays BA 10,598 0 10,199 11,000 D 696 11,492 12,162 402,739 197,773 '5,000 193,383 '1,000 11,957 Science and Education Administration Federal funds General and Special Funds: Agricultural research Appropriation, current Reappropriation Outlays Cooperative research Appropriation, current 352 Outlays Technical information systems Outlays Buildings and facilities Outlays Library facilities Outlays Intragovernmental Funds: Consolidated working fund Outlays Trust funds Miscellaneous contributed funds 343,329 BA 0 2,000 330,119 369,920 c 1,106 0 8,144 2,000 335,006 BA 174,395 189,045 0 153,069 176,492 BA 0 275,399 272,936 285,537 261,732 298,134 275,968 BA 7,527 8,789 0 7,491 7,835 ° 213 7,505 36,740 12 11,153 18,074 324,927 352 Outlays Extension activities BA 352 352 7,913 352 BA 0 352 0 1 0 235 15 BA 0 1,754 1,027 1,308 976 1,017 1,250 BA O 839,390 763,863 863,800 791,903 912,435 821,265 BA 0 1,754 1,027 1,308 976 1,017 1,250 352 352 Outlays Total Federal funds Science and Education Ad- Total Trust funds Science and Education Admin- See footnotes at end of table. 399 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Economics, Statistics, and Cooperatives Service Federal funds General and Special Funds: Salaries and expenses Appropriation, current 352 BA 82,501 87,625 c 3 4,651 98,975 91,910 98,606 0 Outlays Trust funds Miscellaneous contributed funds Appropriation, permanent, indefinite Outlays 0 82,260 352 BA 0 48 319 70 70 70 70 1,009 1,045 2,110 1,128 1,484 2,040 World Food and Agricultural Outlook and Situation Board Federal funds General and Special Funds: World food and agricultural outlook and situation board 352 Appropriation, current BA Outlays 0 "66 Foreign Agricultural Service Federal funds General and Special Funds: Foreign Agricultural Service Appropriation, current 352 BA 53,917 54,631 0 708 61,760 Outlays 0 Salaries and expenses (special foreign currency program) 352 Outlays 0 48,942 54,895 62,162 Total Federal funds Foreign Agricultural Service.. BA 0 53,917 55,339 61,760 49,631 55,395 62,662 BA 456 2,547 D 17 6,868 Outlays 0 Scientific activities overseas (special foreign currency program) 352 Appropriation, current BA Outlays 0 9,802 2,564 6,868 5,750 5,750 5,750 5,661 6,900 5,350 689 500 500 Office of International Cooperation and Development Federal funds General and Special Funds: Salaries and expenses Appropriation, current 352 Intragovernmental Funds: Consolidated working fund Outlays See footnotes at end of table. 151 0 -2,643 THE BUDGET FOR FISCAL YEAR 1981 400 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Office of International Cooperation and Development—Con. Trust funds Miscellaneous contributed funds Appropriation, permanent, indefinite Outlays 352 BA 0 1,412 7,011 6,087 1,586 7,357 6,087 Total Federal funds Office of International CoopBA O 6,206 8,314 12,618 12,820 9,464 12,218 1,412 7,011 6,087 1,586 7,357 6,087 743,476 1,128,930 Total Trust funds Office of International CooperBA 0 Foreign Assistance Programs Federal funds General and Special Funds: Expenses, Public Law 480, foreign assistance programs, Agriculture 151 Appropriation, current BA 805,900 ^96,708 Outlays 0 975,902 1,072,092 w 96,708 1,153,000 Increase ( - ) or decrease in amount owed by the Public Law 480 account to the Commodity Credit Corportation 351 Outlays 0 -170,002 -328,616 -24,070 Total Federal funds Foreign Assistance Programs BA 0 805,900 840,184 1,128,930 805,900 840,184 1,128,930 BA 227,509 186,529 197,942 Agricultural Stabilization and Conservation Service Federal funds General and Special Funds: Salaries and expenses Appropriation, current 351 D Outlays Sugar Act program Outlays Rural clean water program Appropriation, current Outlays Agricultural conservation program Appropriation, current Liquidation of contract authority, current Outlays Water Bank program Appropriation, current Outlays Cropland adjustment program Outlays See footnotes at end of table. 0 226,082 0 1 6,018 187,597 192,879 50,000 20,000 5,000 5,563 351 304 BA 0 302 BA O 190,000 190,000 190,000 (190,000) 232,243 219,900 193,000 10,000 10,000 10,000 8,181 9,400 6,526 302 BA O 351 0 2 . 401 T H E FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Agricultural Stabilization and Conservation Service—Con. Emergency conservation program Appropriation, current Outlays Dairy and beekeeper indemnity programs Appropriation, current Outlays Forestry incentives program Appropriation, current Outlays 453 BA 0 10,000 23,384 15,000 22,500 10,000 15,000 BA 0 3,240 3,242 3,290 3,290 200 200 BA 0 15,000 14,324 15,000 17,945 15,000 15,015 BA 0 455,749 507,459 475,837 465,632 443,142 428,183 BA 12,000 12,000 351 302 Total Federal funds Agricultural Stabilization and Conservation Service Federal Crop insurance Corporation Federal funds General and Special Funds: Administrative and operating expenses ' Appropriation, current 351 Outlays Public Enterprise Funds: Federal Crop Insurance Corporation fund Outlays 7 12,000 111,228 0 11,650 12,000 12,000 0 -19,589 14,893 15,193 ' -18,583 (16,500) (1,095) (18,583) -'111,228 351 Limitation on administrative and operating expenses Total Federal funds Federal Crop Insurance Corporation (12,377) 0 BA 0 12,000 —7,939 12,000 26,893 123,228 119,838 BA BA 0 990,900 5,500,000 3,572,102 3,056,189 3,299,887 v";*;"™; 1,696,536 ' 359,070 (50,100) (50,700) (53,600) 6,490,900 3,572,102 3,056,189 2,792,442 3,299,887 2,055,606 Commodity Credit Corporation Support and Related Activities Federal funds Public Enterprise Funds: Price support and related programs: Reimbursement for net realized losses 351 Appropriation, current Authority to borrow, current Outlays Limitation on administrative expenses and direct loans Total Federal funds Support and Related Activities See footnotes at end of table. 310-000 0 - 8 0 - 2 7 BA 0 2,792,442 T H E B U D G E T FOR FISCAL YEAR 1981 402 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Commodity Credit Corporation—Con. Special Activities Federal funds General and Special Funds: National Wool Act (special fund) 351 Appropriation, permanent, indefinite BA Outlays 0 Intragovemmental Funds: Increase or decrease ( - ) in amount owed to the Corporation by the Public Law 480 account 351 Outlays 0 Total Federal funds Special Activities BA 0 Total Federal funds Commodity Credit Corporation BA 0 33,038 39,421 36,886 39,421 36,886 40,421 170,002 328,616 24,070 33,038 39,421 209,423 365,502 36,886 64,491 6,523,938 3,095,610 3,336,773 3,781,525 3,157,944 2,120,097 26,165 28,051 Rural Electrification Administration Federal funds General and Special Funds: Salaries and expenses >n, current 271 BA 25,121 D Outlays Public Enterprise Funds: Rural communication development fund Appropriation, permanent, indefinite Authority to borrow, permanent, indefinite Outlays 0 23,923 1,256 27,963 27,899 452 BA BA 0 Total Federal funds Rural Electrification Administration BA 10,000 25 34,154 4,247 15,797 25,121 37,446 62,205 0 23,923 32,210 43,696 BA 0 282,500 300,000 284,000 286,989 300,548 302,736 BA 0 10,000 10,811 10,000 11,890 10,000 11,522 BA 0 5,000 7,000 5,000 4,270 7,130 6,600 BA 225,144 230,338 246,677 Farmers Home Administration Federal funds General and Special Funds: Rural water and waste disposal grants Appropriation, current Outlays Rural development grants Appropriation, current Outlays Rural development planning grants Appropriation, current Outlays Salaries and expenses Appropriation, current 452 452 452 452 c 13 9,142 Outlays See footnotes at end of table. 211,505 238,376 245,871 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 403 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1981 estimate estimate Department of Agriculture—Con. Farmers Home Administration—Con. Rural community fire protection grants Outlays Rural housing for domestic farm labor Outlays Mutual and self-help housing Outlays Rural housing supervisory assistance grants Outlays Very low income housing repair grants Outlays Public Enterprise Funds: Self-help housing land development fund Outlays Rural housing insurance fund Outlays Agricultural credit insurance fund Outlays Rural development insurance fund 452 Outlays Watershed planning Outlays See footnotes at end of table. 3,500 3,855 1,665 BA O 33,000 5,886 25,000 8,331 25,000 20,108 BA O 13,500 4,915 5,000 5,345 7,800 BA O 2,500 1,500 4,000 2,000 2,000 BA O 19,000 18,870 24,000 23,779 25,000 24,980 BA O 1,000 -29 728 4,000 2,042 BA BA BA BA O 320,192 14,156 455 454,793 183,822 320,209 76,150 504,318 111,000 1,912,169 1,801,610 -961,916 BA BA 0 143,565 988,867 1,017,151 272,809 297,032 23M76 -1,020,074 BA BA BA O 107,276 143,282 400,094 151,990 91,874 -10,000 52,119 90,000 BA 0 3,024,542 1,899,622 3,330,823 2,734,068 1,657,309 -1,157,051 BA 262,402 283,801 0 256,417 264,747 12,328 277,766 BA 0 16,487 14,088 16,487 16,467 17,442 17,419 BA 11,847 6,660 0 12,964 10,500 »615 11,316 604 371 604 371 . 371 351 , 452 Total Federal funds Farmers Home Administration Outlays River basin surveys and investigations 3,500 3,442 604 Outlays.. Soil Conservation Service Federal funds General and Special Funds: Conservation operations Appropriation, current BA O 302 D 301 301 199,615 292,063 7,502 404 THE BUDGET FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued Account and functional code . 1979 actual 1980 estimate 1981 estimate Department of Agriculture—Con. Soil Conservation Service—Con. Watershed and flood prevention operations Appropriation, current Outlays Great plains conservation program Appropriation, current Outlays Resource conservation and development Appropriation, current Outlays 301 BA 0 169,607 228,239 167,524 199,692 172,160 191,708 BA 0 18,689 21,543 18,689 22,032 20,591 23,916 BA 0 25,441 25,791 32,000 25,323 34,593 31,235 302 302 Trust funds Miscellaneous contributed funds: (Water resources) (Appropriation, permanent, indefinite) (Outlays) (Conservation and land management) (Appropriation, permanent, indefinite) (Outlays) 301 BA 0 693 803 1,010 910 1,000 1,010 BA 0 298 345 100 90 78 100 Total Miscellaneous contributed funds BA 0 991 1,148 1,110 1,000 1,078 1,110 Total Federal funds Soil Conservation Service BA 0 Total Trust funds Soil Conservation Service BA 0 302 504,473 559,042 991 1,148 522,890 552,596 1,110 1,000 535,247 563,843 1,078 1,110 Animal and Plant Health Inspection Service Federal funds Genera! and Special Funds: Animal and Plant Health Inspection Service Appropriation, current Outlays Animal quarantine station Outlays 352 BA 237,406 0 227,990 245,631 » 6,834 251,765 259,044 258,178 352 0 406 115 1,968 1,702 2,126 2,094 Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays 352 Total Federal funds Animal and Plant Health Inspection Service Total Trust funds Animal and Plant Health Inspection Service See footnotes at end of table. BA O BA 0 BA 0 237,406 228,396 1,968 1,702 252,465 251,880 2,126 2,094 2,326 2,326 259,044 258,178 2,326 2,326 405 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Federal Grain Inspection Service Federal funds General and Special Funds: Salaries and expenses Appropriation, current 352 Outlays Public Enterprise Funds: Inspection and weighing services Outlays BA 22,680 0 21,150 0 -2,844 23,122 1,172 24,294 D 26,268 26,268 352 Total Federal funds Federal Grain Inspection Service BA 0 22,680 18,306 BA 46,653 1,815 2,040 24,294 26,109 26,268 28,308 46,302 2,544 48,696 50,710 Agricultural Marketing Service Federal funds General and Special Funds: Marketing services Appropriation, current 352 D Outlays Payments to States and possessions Appropriation, current Outlays Perishable Agricultural Commodities Act fund Appropriation, permanent, indefinite Outlays Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays Milk market orders assessment fund Outlays 0 43,024 50,560 352 BA 0 1,600 783 1,600 3,391 BA 0 1,708 1,912 2,218 2,392 2,265 2,439 BA 0 653 43 177 177 178 178 52,664 54,479 52,975 52,999 352 352 351 Total Federal funds Agricultural Marketing Service.. Total Trust funds Agricultural Marketing Service. 0 -255 BA 0 49,961 45,719 BA 0 653 -212 177 177 178 178 BA 0 1,344 1,018 1,612 1,612 2,205 2,205 Office of Transportation Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays See footnotes at end of table. 352 406 T H E B U D G E T FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 jctual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Food Safety and Quality Service Federal funds General and Special Funds: Salaries and expenses Appropriation, current 554 BA 279,531 0 262,928 278,430 14,076 290,510 301,888 BA 0 223,192 273,889 311,163 303,083 390,190 370,610 BA 0 48,579 48,853 53,772 51,585 53,832 53,401 BA 0 502,723 536,817 603,669 593,593 692,078 670,687 BA 0 48,579 48,853 53,772 51,585 53,832 53,401 BA 77,290 87,008 71,300 82,000 2,408 83,265 6,670,278 6,179,676 6,226,494 * 3,503,376 D Outlays Funds for strengthening markets, income, and supply (section 32) 604 Appropriation, permanent, indefinite Outlays 300,077 Trust funds Expenses and refunds, inspection and grading of farm products 352 Appropriation, permanent, indefinite Outlays Total Federal funds Food Safety and Quality Service Total Trust funds Food Safety and Quality Service Food and Nutrition Service Federal funds General and Special Funds: Food program administration Appropriation, current 604 D Outlays Food stamp program Appropriation, current 0 BA B Outlays 0 6,821,746 fl Special milk program Appropriation, current 85,912 604 2,556,174 ^ —477 6,155,156 2,522,844 9,622,170 B 33,330 142,000 166,200 604 BA 142,000 * 11,800 Outlays Child nutrition programs Appropriation, current Appropriation, permanent Outlays 0 134,086 142,000 * 7,600 1,402,035 1,279,215 * 337,400 ' -55,700 154,700 A 4,200 '—53,300 604 BA BA 0 1,411,575 2,879,668 1,830,923 J 1,831,086 2,992,434 * 322,700 J See footnotes at end of table. —401,800 1,879,653 3,483,800 A 14,700 —379,000 407 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Agriculture—Con. Food and Nutrition Service—Con. Special supplemental food programs (WIC) Appropriation, current 604 BA 569,500 757,700 924,540 J 542,158 Outlays.. food donations program Appropriation, current 46,160 735,060 860,430 ' 42,880 90,290 129,450 604 BA 69,800 A Outlays 0 Total Federal funds Food and Nutrition Service.... BA 0 16,044 64,139 90,626 * 12,994 122,990 * 3,050 10,342,478 13,285,316 14,336,304 10,513,097 13,064,679 13,995,862 1,007,206 1,067,814 Forest Service Federal funds General and Special Funds: Forest management, protection and utilization Appropriation, current 302 BA 925,841 * 100,697 D 927,384 Outlays.. Construction and land acquisition Appropriation, current Outlays Youth Conservation Corps Appropriation, current 27,463 881,518 88,743 1,012,546 Ml,954 423,412 373,415 A 302 BA 279,643 D 0 136,869 6,282 223,919 BA 60,000 54,000 367,889 302 55,000 "797 Outlays Forest roads and trails 302 Appropriation, current Outlays Other general appropriations 302 Outlays Acquisition of lands for national forests, special acts 302 Appropriation, current Outlays Acquisition of lands to complete land exchanges 302 Outlays Rangeland improvements 0 BA 0 62,702 55,365 60,795 231,393 212,917 139,549 283 0 BA 0 385 325 754 135 325 754 BA 0 239 155 446 43 155 446 BA 0 5,356 5,900 6,800 4,890 4,135 6,800 BA 0 3,459 4,002 3,850 3,900 2,850 3,895 302 Outlays Construction and operation of recreation facilities 303 Appropriation, current, indefinite Outlays See footnotes at end of table. 408 T H E BUDGET FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Agriculture—Con. Forest Service—Con. Timber salvage sales Appropriation, current Appropriation, permanent, indefinite Outlays Forest Service permanent appropriations Appropriation, permanent, indefinite Outlays Forest Service permanent appropriations Appropriation, permanent, indefinite Outlays Intragovernmental Funds: Working capital fund Outlays Consolidated working fund Outlays Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays Highland scenic highway Outlays Total Federal funds Forest Service Total Trust funds Forest Service 302 BA BA 0 8,782 11,000 8,070 11,200 10,080 BA 0 152,408 182,724 188,950 123,943 164,490 185,851 BA 0 240,605 279,163 320,000 240,708 279,163 320,000 302 852 302 0 -6,787 0 1,583 2,276 140,053 96,609 96,400 64,018 92,680 97,994 4,526 3,869 1,042 BA 1,914,716 2,102,974 2,028,279 O 1,717,171 1,850,841 1,981,010 BA 140,053 96,609 96,400 68,544 96,549 99,036 25,472,207 25,731,941 25,851,641 21,636,220 24,674,861 21,311,932 -100,230 —226,075 -210,000 302 302 BA 0 401 0 0 Summary Federal funds: (As shown in detail above) BA O Deductions for offsetting receipts: Intrafund transactions 302 BA 0 Proprietary receipts from the public 3,000 12,387 270 BA O 300 BA 0 302 BA O 350 BA 0 -3 363,762 -477,849 -517,154 510,400 -340,450 -498,993 47,776 -2,638 -2,638 BA n O 450 BA 0 -40 550 BA 3 O 600 BA O See footnotes at end of table. -1,092 -38 -38 -3 -3 -1,000 -1,000 409 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Agriculture—Con. Summary—Con. 902 BA O BA Total Federal funds 0 Trust funds: (As shown in detail above) BA 0 Deductions for offsetting receipts: Proprietary receipts from the public 302 BA 0 352 BA 0 BA Total Trust funds 0 BA Total Department of Agriculture 0 -96 -122 -115 24,544,331 20,708,344 24,683,792 23,626,712 24,621,701 20,081,992 195,458 122,967 162,183 159,808 160,988 163,458 -140,053 -96,609 -96,400 -55,404 -65,574 -64,588 1 -72,490 —2,375 2,470 24,544,332 20,635,854 24,683,792 23,624,337 24,621,701 20,084,462 27,622 ^ 4,200 c 3 D 950 27,907 A 4,200 39,019 Department of Commerce General Administration Federal funds General and Special Funds: Salaries and expenses Appropriation, current 376 Outlays White House conference on balanced national growth and economic development 376 Outlays Special foreign currency program 376 Outlays Participation in United States expositions 376 Appropriation, current Outlays tntragovernmental Funds: Working capital fund Outlays Consolidated working fund Outlays See footnotes at end of table. BA 25,640 0 25,599 0 1 0 329 143 76 * 20,800 98 ^ 4,053 BA 0 376 0 454 0 -844 376 184 39,029 * 10,904 THE BUDGET FOR FISCAL YEAR 1981 410 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Commerce—Con. General Administration—Con. Trust funds Miscellaneous trust funds Appropriation, permanent Outlays 376 BA 0 224 243 200 200 200 200 Total Federal funds General Administration BA 0 25,640 25,615 53,575 36,585 39,019 49,933 Total Trust funds General Administration BA 0 224 243 200 200 200 200 BA 51,033 58,268 0 36,460 52,090 "1,699 50,724 148,085 ... Bureau of the Census Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays Periodic censuses and programs Appropriation, current 376 BA 201,928 0 145,002 604,900 34,493 567,374 376 , 0 10,761 114 376 .... BA .... 0 6,122 5,691 8,116 8,116 9,283 9,283 BA O 252,961 192,223 693,182 618,212 206,353 283,154 .... BA 0 6,122 5,691 8,116 8,116 9,283 9,283 16,977 21,227 24,986 Outlays Intragovernmenta! Funds: Consolidated working fund Outlays Trust funds Special studies, services, and projects Appropriation, permanent, indefinite Outlays Total Federal funds Bureau of the Census Total Trust funds Bureau of the Census 53,557 376 D 229,597 Economic and Statistical Analysis Federal funds General and Special Funds: Salaries and expenses Appropriation, current 376 BA ^ 597 Outlays Intragovernmental Funds: Consolidated working fund Outlays See footnotes at end of table. 0 17,545 o -1,156 376 21,389 24,554 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 411 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Commerce—Con. Economic and Statistical Analysis—Con. Trust funds Special studies, services, and projects 376 Outlays.. Total Federal funds Economic and Statistical Analysis Total Trust funds Economic and Statistical Anal* ysis BA 0 145 43 250 250 250 250 BA 0 16,977 16,389 21,824 21,389 24,986 24,554 BA 0 145 43 250 250 250 250 BA 30,536 41,504 71,299 Economic Development Assistance Economic Development Administration Federal funds General and Special Funds: Salaries and expenses Appropriation, current 452 A 2,621 D 29,328 1,221 18,092 36,965 A 2,400 * 15,419 507,525 507,525 435,561 » 566,808 483,114 * 46,000 564,241 * 212,000 358,203 200,000 3,000 2,000 1,000 500 w Outlays.. Economic development assistance programs Appropriation, current 452 BA Outlays Local public works program Outlays Drought assistance program Outlays Financial and technical assistance Outlays Job opportunities program Outlays Public Enterprise Funds: Economic development revolving fund Outlays BA 0 1,169,250 10,968 1,740,678 .. 453 0 12,966 376 0 504 0 2,059 12,029 -33,490 -33,000 J 16,500 -43,000 ' 43,000 549,029 2,187,102 1,137,771 941,630 1,240,549 1,047,059 452 0 K 452 Total Federal funds Economic Development Administration BA See footnotes at end of table. 65,424 ^ 221 » 2,673 THE BUDGET FOR FISCAL YEAR 1981 412 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Commerce—Con. Economic Development Assistance—Con. Regional Development Program Federal funds General and Special Funds: Regional development program Appropriation, current. 452 BA 62,800 62,800 D Outlays 133 * 11,205 61,726 w 8,402 , * 74,227 0 60,859 BA 0 42,952 45,284 47,054 48,878 44,334 45,188 Total Federal funds Economic Development Assistance BA 0 611,829 2,247,961 1,211,909 1,011,758 1,314,776 1,118,799 BA 0 42,952 45,284 47,054 48,878 44,334 45,188 BA 73,573 90,643 107,661 * 9,860 Trust funds Regional development commissions Appropriation, permanent, indefinite Outlays 70,458 1,282 w 452 Total Trust funds Economic Development Assistance Promotion of Industry and Commerce International Trade Administration Federal funds General and Special Funds: Operations and administration Appropriation, current 376 Outlays Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays *600 "2,954 "600 92,312 ^ 600 *600 0 70,771 BA o 6,299 6,271 7,790 7,790 8,290 8,290 BA 57,965 62,857 0 54,110 59,015 °400 55,997 117,521 376 Minority Business Development Agency Federal funds General and Special Funds: Minority business development Appropriation, current Outlays See footnotes at end of table. 376 59,407 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 413 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Commerce—Con. Promotion of Industry and Commerce—Con. United States Travel Service Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays Intragovernmental Funds: Consolidated working fund Outlays 376 BA 0 8,000 11,664 13,597 13,851 376 0 Total Federal funds United States Travel Service. BA 0 Total Federal funds Promotion of Industry and Commerce BA 0 Total Trust funds Promotion of Industry and Commerce BA 0 34 13,597 8,000 13,885 11,664 145,135 162,212 180,378 138,766 161,173 176,928 6,299 7,790 8,290 6,271 7,790 8,290 679,510 706,500 .. Science and Technology National Oceanic and Atmospheric Administration Federal funds General and Special Funds: Operations, research, and facilities Appropriation, current 306 BA 675,168 * 67,833 0 A 1,000 c 1,304 17,218 £ Indefinite Outlays Construction Appropriation, current Outlays Coastal zone management Appropriation, current 383 BA 0 843 850 850 668,109 695,673 A 700 732,803 *300 BA BA 60,000 890 18,557 26,766 63,840 64,675 306 0 ... 302 BA BA 7,172 * 45,163 A 6,000 ^206 Outlays- 0 Promote and develop fishery products and research pertaining to American fisheries 376 Appropriation, current BA Appropriation, permanent, indefinite BA Outlays 0 See footnotes at end of table. 60,083 3,300 30,355 64,067 * 2,700 12,436 21,679 35,827 10,431 15,400 29,000 12,000 A ' -15,827 THE BUDGET FOR FISCAL YEAR 1981 414 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Commerce—Con. Science and Technology—Con. National Oceanic and Atmospheric Administration—Con. Fishing vessel and gear damage compensation 376 fund Appropriation, current, indefinite Outlays 376 Fishermen's contingency fund Appropriation, current Outlays Public Enterprise Funds: Fisheries loan fund Outlays Fishermen's guaranty fund Outlays Coastal energy impact fund Outlays Federal ship financing fund, fishing vessels Outlays Intragovernmental Funds: Consolidated working fund Outlays Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays BA 0 1,000 64 3,500 3,200 3,500 3,500 600 600 600 600 -100 BA 0 376 0 202 200 0 -125 300 0 10,773 34,043 0 -1,094 -1,050 0 -2,253 376 452 53,472 376 306 306 BA 12,340 11,676 12,000 12,000 12,000 12,000 BA 0 817,629 717,352 823,915 834,390 820,286 897,724 BA 0 12,340 11,676 12,000 12,000 12,000 12,000 BA 96,654 99,672 1,671 c 58 D 4,512 101,840 113,202 0 Total Federal funds National Oceanic and Atmospheric Administration Total Trust funds National Oceanic and Atmospheric Administration Patent and Trademark Office Federal funds General and Special Funds: Salaries and expenses Appropriation, current.. 376 A Outlays.. See footnotes at end of table. 97,124 A 1,600 108,477 A l\ 415 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Commerce—Con. Science and Technology—Con. Science and Technical Research Federal funds General and Special Funds: Scientific and technical research and services Appropriation, current 376 BA 86,970 91,670 16,467 * 101,746 c 489 ° 2,282 116,211 79,961 96,706 BA 3,330 4,858 0 1,576 4,000 4,000 0 64 0 Outlays Intragovernmental Funds: 376 Working capital fund Appropriation, current K Outlays Consolidated working fund Outlays 6,123 376 .... Trust funds Information products and services Appropriation, permanent, indefinite Outlays 376 Total Federal funds Science and Technical Research Total Trust funds Science and Technical Research BA 0 21,062 22,000 22,000 21,345 22,000 22,000 BA 0 90,300 99,299 124,336 81,601 100,706 120,211 BA 0 21,062 22,000 22,000 21,345 22,000 22,000 BA 11,925 17,305 18,068 National Telecommunications and Information Administration Federal funds General and Special Funds: Salaries and expenses 376 °437 Outlays Public telecommunications facilities, planning and construction 503 Appropriation, current Outlays 0 11,876 17,226 17,451 BA 0 18,000 23,705 23,705 8,777 21,090 22,845 BA 0 29,925 41,447 41,773 20,653 38,316 40,296 BA 0 1,034,508 1,070,574 1,099,597 916,730 1,076,852 1,166,779 BA 0 33,402 34,000 34,000 33,021 34,000 34,000 Total Federal funds National Telecommunications See footnotes at end of table. 416 THE B U D G E T FOR FISCAL Y E A R 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Commerce—Con. Ocean Shipping Maritime Administration Federal funds General and Special Funds: Ship construction Appropriation, current 403 Outlays Operating-differential subsidies Contract authority, permanent, indefinite Liquidation of contract authority, current BA 157,000 101,000 0 200,777 254,000 289,625 (250,000) 304,755 (256,208) * (44,307) 298,719 A 44,307 403 BA Outlays 0 Research and development Appropriation, current Outlays Operations and training Appropriation, current * 135,000 208,100 300,522 348,502 (347,697) 347,697 403 BA 17,500 16,300 0 17,166 16,300 BA 57,891 64,622 * 18,750 18,750 403 * 65,627 c Outlays Public Enterprise Funds: Federal ship financing fund Outlays Vessel operations revolving fund Outlays War risk insurance revolving fund Outlays Intragovemmental Funds: Consolidated working fund Outlays 0 55,154 229 D 1,030 64,153 0 -28,068 -26,847 0 2,899 0 -407 67,220 -34,513 403 403 800 403 -549 -600 420 420 400 400 403 0 -1,008 Trust funds Special studies, services and projects Appropriation, permanent, indefinite Outlays 403 BA 0 Total Federal funds Maritime Administration BA O Total Trust funds Maritime Administration BA 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public BA 0 300 BA 370 See footnotes at end of table. 376 381 522,016 547,035 376 381 2,609,066 4,084,719 487,936 650,883 420 420 3,701,212 3,576,852 567,879 606,654 400 400 3,432,988 3,426,801 q —937 —840 —840 SA -406 -252 -252 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT 417 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code estimate 1981 estimate Department of Commerce—Con. Summary—Con. 400 450 902 Total Federal funds Trust funds: (As shown in detail above) Deductions for offsetting receipts: Intrafund transactions Proprietary receipts from the public -9,916 -13,513 -7,150 -260 -418 -418 -3,049 -3,274 -3,274 BA 0 2,594,498 4,070,151 3,682,915 3,558,555 3,421,054 3,414,867 BA 0 89,520 90,934 97,830 99,654 96,757 97,611 -948 -869 -869 376 BA 0 306 BA 0 376 BA 0 403 BA 0 452 BA 0 -12,341 -12,000 -12,000 -26,292 -34,017 -35,684 -376 -420 -400 -1,720 -1,811 -2,099 BA 0 47,843 49,257 48,713 50,537 45,705 46,559 -6,409 -3,300 -3,300 -41,233 -45,243 —42,235 2,594,699 4,071,766 3,683,085 3,560,549 3,421,224 3,415,891 9,778,919 A 64,000 £ 597,100 10,350,000 A 64,000 10,830,900 6,857,256 7,509,200 Total Trust funds 376 Interfund transactions BA 0 BA 0 BA 0 452 BA 0 BA 0 BA 0 Total Department of Commerce Department of Defense-Military Military Personnel Federal funds General and Special Funds: Military personnel, Army Appropriation, current 051 Outlays Military personnel, Navy Appropriation, current BA 9,702,873 0 9,617,759 BA 6,792,633 051 A Outlays 0 See footnotes at end of table. 310-000 0 - 80 - 10,753,000 28 6,738,246 26,800 * 413,837 7,269,200 A 26,800 7,447,000 418 THE BUDGET FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Military Personnel—Con. Military personnel Marine Corps Appropriation, current 051 Outlays Military personnel, Air Force Appropriation, current 0 2,054,816 BA 7,961,935 0 7,889,486 • 2,089,457 A 9,700 £ 128,824 2,192,300 A 9,700 2,257,300 7,901,717 A 24,680 £ 489,398 8,280,320 A 24,680 8,700,500 606,400 A 1,200 * 35,941 618,800 760,200 2,233,000 8,624,000 051 Outlays Reserve personnel, Navy Appropriation, current 2,106,200 051 Outlays Reserve personnel, Army Appropriation, current BA BA 566,800 0 560,128 A 730,000 1,200 051 BA 233,931 240,902 A 429 13,577 251,571 x 429 261,200 88,100 1,100 £ 4,949 88,900 94,900 £ Outlays Reserve personnel, Marine Corps Appropriation, current 0 243,376 260,000 051 BA 87,200 A Outlays Reserve personnel, Air Force Appropriation, current Outlays National Guard personnel, Army Appropriation, current 0 A 91,000 1,100 051 BA 197,400 e j j JJ53 214,400 244,100 0 195,367 220^000 238,000 BA 787,100 1,056,200 0 765,386 877,550 A 3,850 £ 52,800 890,150 A 3,850 BA 266,500 322,800 261,872 273,500 17,060 281,000 28,702,572 28,407,171 30,825,299 30^574,000 32,037,300 31,705,000 051 Outlays National Guard personnel, Air Force Appropriation, current 80,735 1,015,000 051 £ Outlays Total Federal funds Military Personnel See footnotes at end of table. o BA 0 314,000 419 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Retired Military Personnel Federal funds General and Special Funds: Retired pay, Defense Appropriation, current 051 Outlays BA 10,283,000 0 10,279,058 11,451,500 A 529,200 11,411,800 A 529,200 13,699,800 13,677,000 Operation and Maintenance Federal funds General and Special Funds: Operation and maintenance, Army Appropriation, current 051 BA 9,593,327 10,256,218 12,137,100 266,000 c Outlays 0 9,187,348 76,700 ° 206,700 9,741,000 A 11,457,000 266,000 Operation and maintenance, Navy Appropriation, current 051 Outlays Operation and maintenance, Marine Corps Appropriation, current Outlays Operation and maintenance, Army Reserve Appropriation, current Outlays See footnotes at end of table. 0 11,269,091 13,277,295 * 230,300 c 140,800 D 173,500 12,329,700 A 230,300 15,631,500 801,446 15,800 c 8,400 0 8,800 816,200 A 15,800 937,200 10,451,150 A 234,200 c 81,900 "137,200 10,239,800 A 234,200 12,137,500 3,551,214 c 16,000 ° 132,000 3,696,000 4,066,300 420,644 c 4,100 D 8,700 428,000 469,200 14,749,000 BA 751,100 0 700,712 A 904,000 051 Outlays Operation and maintenance, Defense agencies Appropriation, current 11,935,515 051 Outlays Operation and maintenance, Air Force Appropriation, current BA BA 9,478,584 0 9,169,077 BA 3,160,018 0 3,183,983 11,726,000 051 3,965,000 051 BA 420,300 0 399,561 460,000 T H E B U D G E T FOR FISCAL Y E A R 1981 420 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Defense-Military—Con. Operation and Maintenance—Con. Operation and maintenance, Navy Reserve Appropriation, current 051 BA ... 0 Outlays Operation and maintenance, Marine Corps Reserve 380,469 315,205 396,436 c 1,200 D 2,200 396,000 444,100 421,000 051 BA 19,900 21,923 27,478 0 16,972 22,000 25,000 BA 393,300 486,000 0 391,408 429,407 c 3,000 D 6,300 432,000 BA 799,400 847,500 0 777,887 786,850 11,900 D 19,000 802,000 BA 950,000 1,229,400 Outlays 0 National Board for the Promotion of Rifle Practice, Army 051 Appropriation, current BA 915,364 1,088,687 c 11,100 D 15,400 1,075,000 425 296 397 °14 400 BA BA 0 118,100 98,200 94,563 Tiwoo BA 0 2,500 538 BA 1,840 2,030 D 69 2,197 0 2,175 2,000 2,170 BA 16,466 1,900 BA 0 2,000 124 10,000 9,000 1,000 BA 0 38,023,194 36,424,304 43,405,197 40,852,000 48,562,700 46,376,000 Outlays Operation and maintenance, Air Force Reserve D m 051 Outlays Operation and maintenance, Army National Guard 478,000 051 Appropriation, current Outlays Operation and maintenance, Air National Guard c 831,000 051 Appropriation, current Outlays Claims, Defense Appropriation, current Indefinite Outlays Contingencies, Defense Appropriation, current... Outlays Court of Military Appeals, Defense Appropriation, current Outlays Foreign currency fluctuations, Defense Appropriation, current XIII Olympic winter games Appropriation, current Outlays 0 430 051 146,800 142,400 051 051 051 051 Total Federal funds Operation and Maintenance... See footnotes at end of table. 375 1,214,000 421 T H E FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Procurement Federal funds General and Special Funds: Aircraft procurement, Army Appropriation, current 051 BA 949,709 951,037 0 557,934 750,000 BA 761,900 1,162,500 Outlays 0 Procurement of weapons and tracked combat vehicles, Army 051 Appropriation, current BA 546,907 617,000 1,506,700 1,812,400 BA 0 1,247,753 12,100 1,371,000 BA 1,164,600 1,232,800 1,499,830 * 13,670 BA 0 30,000 958,085 999,000 1,138,000 BA BA 0 1,616,950 40,000 1,138,561 1,407,810 47,000 1,293,000 2,129,758 BA 4,337,100 4,428,746 0 3,140,183 3,806,000 BA 1,931,022 1,953,914 BA 0 1,701,744 8,300 1,842,000 BA 5,112,600 6,606,150 BA 0 36,238 4,553,451 76,200 4,218,000 BA BA 0 2,603,814 3,081,447 1,982,745 2,590,056 34,700 2,349,000 BA 356,000 283,785 0 404,400 373,000 306,442 * 161,158 351,000 6,871,107 7,962,381 5,138,195 13,800 5,772,000 Outlays Missile procurement, Army Appropriation, current * 925,300 874,000 051 * 1,501,300 998,000 * 2,628,900 Reappropriation Outlays Procurement of ammunition, Army Appropriation, current Reappropriation Outlays Other procurement, Army Appropriation, current Reappropriation Outlays Aircraft procurement, Navy Appropriation, current Outlays Weapons procurement, Navy Appropriation, current 1,620,000 051 051 1,467,000 051 * 4,966,300 4,103,000 051 * 2,318,600 Reappropriation Outlays Shipbuilding and conversion, Navy Appropriation, current 1,924,000 051 * 6,118,400 Reappropriation Outlays Other procurement, Navy Appropriation, current Reappropriation Outlays Procurement, Marine Corps Appropriation, current Outlays Aircraft procurement, Air Force Appropriation, current 4,408,000 051 2,431,000 051 051 BA * 8,555,043 Reappropriation Outlays See footnotes at end of table. BA 0 6,473,000 422 THE BUDGET FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Procurement—Con. Missile procurement, Air Force Appropriation, current 051 1,473,000 2,167,985 BA 0 1,537,223 15,000 1,607,000 BA BA 0 2,326,150 37,000 2,230,361 2,619,141 13,600 2,354,000 2,972,687 BA 0 274,600 237,225 286,375 278,000 302,523 291,000 14,202 15,000 15,000 BA Reappropriation Outlays Other procurement, Air Force Appropriation, current Reappropriation Outlays Procurement, Defense agencies Appropriation, current Outlays Procurement of aircraft and missiles, Navy Outlays Procurement of equipment and missiles, Army Outlays * 3,042,284 1,842,000 051 2,561,000 051 051 0 051 0 15,285 4,000 1,000 BA 0 31,428,490 25,404,254 35,685,780 27,648,000 40,523,642 30,497,000 BA 2,640,864 2,843,231 BA 0 2,408,870 2,000 2,652,000 BA 4,465,266 4,550,133 Reappropriation BA Outlays 0 Research, development, test, and evaluation, Air Force 051 Appropriation, current BA 15,000 3,826,449 15,886 4,710,000 4,383,140 4,944,802 11,837 4,079,757 81,230 4,581,000 892,887 1,037,022 808,781 958,000 Total Federal funds Procurement Research, Development, Test, and Evaluation Federal funds General and Special Funds: Research, development, Army Appropriation, current test, and evaluation, 051 * 3,232,500 Reappropriation Outlays Research, development, test, and evaluation, Navy 2,966,000 051 Appropriation, current x Reappropriation BA Outlays 0 Research, development, test, and evaluation, Defense agencies 051 Appropriation, current BA Outlays See footnotes at end of table. 0 4,836,100 4,653,000 * 7,085,300 ! 6,019,000 * 1,289,500 1,167,000 423 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Research, Development, Test, and Evaluation—Con. Director of test and evaluation, Defense Appropriation, current 051 Outlays Total Federal funds Research, Development, Test, and Evaluation BA 27,600 42,500 0 28,320 32,000 * 42,100 38,000 BA 0 12,436,594 11,152,177 13,516,804 12,933,000 16,485,500 14,843,000 BA 722,409 725,649 0 606,561 643,000 84,680 * 895,620 659,000 BA 760,145 567,000 0 734,231 660,000 BA 483,264 565,456 0 564,064 562,000 BA 183,980 192,350 Military Construction Federal funds General and Special Funds: Military construction, Army Appropriation, current Outlays Military construction, Navy Appropriation, current 051 051 Outlays Military construction, Air Force Appropriation, current 051 Outlays Military construction, Defense agencies Appropriation, current 051 * 703,000 553,000 196,860 * 618,440 515,000 K Outlays North Atlantic Treaty Organization infrastructure 0 3,550 125,000 235,700 62,000 051 Appropriation, current Outlays Military construction, Army National Guard Appropriation, current BA 0 051 Outlays Military construction, Air National Guard Appropriation, current 051 Outlays Military construction, Army Reserve Appropriation, current 051 Outlays Military construction, Naval Reserve Appropriation, current 051 Outlays See footnotes at end of table. * 300,000 125,000 BA 52,200 23,700 0 49,279 47,000 BA 44,750 36,000 0 38,741 37,000 BA 37,100 30,000 0 46,102 40,000 BA 21,850 18,300 0 25,477 21,000 7,859 * 27,141 31,000 9,700 * 80,500 43,000 4,479 * 39,721 34,000 2,450 * 22,250 17,000 T H E B U D G E T FOR FISCAL Y E A R 1981 424 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1981 estimate estimate Department of Defense-Military—Con. Military Construction—Con. Military construction, Air Force Reserve 051 Outlays.. BA 13,000 12,000 0 11,981 12,000 3,875 * 18,725 14,000 BA 0 2,318,698 2,079,986 2,170,455 2,147,000 3,251,000 2,053,000 BA 1,561,639 1,498,697 Family Housing Federal funds General and Special Funds: Family housing, Defense Outlays Foreign currency fense 051 BA 0 fluctuation, 1,469,113 . * 1,953,749 K 18,651 1,685,000 1,570,000 Construction, De051 BA BA Public Enterprise Funds: Homeowners assistance fund, Defense 100,000 25,000 . . 051 Outlays.. BA BA 0 1,500 26 -1,595 1,000 1,000 1,000 BA 0 1,563,165 1,467,518 1,624,697 1,571,000 1,972,400 BA 14,362 6,667 2,698 8,555 * 2,760 7,250 0 -1,445 -285 -113 0 -115 47 BA BA 0 74,000 101,980 117,395 BA BA 0 251,409 37,199 1,686,000 Special Foreign Currency Program Federal funds General and Special Funds: Special foreign currency program Appropriation, current 051 Outlays.. Revolving and Management Funds Federal funds Public Enterprise Funds: Defense production guarantees Outlays Laundry service, Naval Academy Outlays Intragovernmental Funds: Army stock fund Appropriation, current Contract authority, permanent, indefinite Outlays Navy stock fund Appropriation, current Contract authority, permanent, indefinite Outlays . See footnotes at end of table. 051 051 051 81,600 43,100 051 309 44,100 "55,200 425 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Defense-Military—Con. Revolving and Management Funds—Con. Marine Corps stock fund Appropriation, current Outlays Air Force stock fund Appropriation, current Contract authority, permanent, indefinite Outlays Defense stock fund Appropriation, current Contract authority, permanent, indefinite Outlays Army industrial fund Outlays Navy industrial fund Outlays Marine Corps industrial fund Outlays Air Force industrial fund Outlays Defense industrial fund Outlays Army management fund Outlays Navy management fund Outlays Air Force management fund Outlays 051 BA 0 4,108 4,726 17,600 2,900 051 BA BA 0 26,800 169,457 106,151 28,300 70,000 051 BA BA 0 051 0 051 0 051 0 051 0 051 0 051 0 051 0 051 0 Total Federal funds Revolving and Management Funds BA 0 322^600 35,000 102,296 93,228 2,747 70,938 136 -116,406 -24,001 -11,232 5,785 489 725,942 285,595 -70,400 -7,669 100,900 1,200 —82*900 —21,544 -19,600 -1,600 35,000 29,200 28,600 -6,400 -25,528 2,060 120 277,945 67,717 320,250 Allowances Federal funds General and Special Funds: Civilian and military pay raises Appropriation, current Outlays Retired pay legislation Appropriation, current Outlays Other legislation Appropriation, current Outlays 051 '1,846,718 n,819,200 BA 0 051 ' 36,700 36,700 BA O 7 051 Total Federal funds Allowances.. BA 0 '229,100 J 229,100 BA 2,112,518 2,085,000 0 Trust Funds Trust funds Miscellaneous trust funds Appropriation, permanent, indefinite Outlays See footnotes at end of table. 051 BA 0 11,479 11,098 10,600 10,605 10,800 10,772 426 THE B U D G E T FOR FISCAL YEAR 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Military—Con. Trust Funds—Con. Miscellaneous trust revolving funds Outlays 051 2,442 28,395 10,628 BA 0 11,479 13,540 10,600 39,000 21,400 BA 0 125,496,017 115,502,761 139,215,599 127,952,500 158,715,337 143,249,500 0 Total Trust funds Trust funds 10,800 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 0 5 1 BA Total Federal funds Trust funds: (As shown in detail above) Interfund transactions 051 Total Department of Defense-Military -492,492 -581500 -560,700 BA 0 125,003,525 115,010,269 138,634,099 127,371,000 158,154,637 142,688,800 BA O 11,479 13,540 10,600 39,000 21,400 -10,760 -10,000 -10,200 125,004,244 115,013,049 138,634,699 127,400,000 158,155,237 142,700,000 8,326 7,000 5,300 5,200 141,463 1,546,681 q BA BA 0 10,800 Department of Defense-Civil Cemeterial Expenses, Army Federal funds General and Special Funds: Salaries and expenses Appropriation, current Outlays 705 BA 0 5,100 5,558 Corps of Engineers-Civil Federal funds General and Special Funds: General investigations Appropriation, current Outlays Construction, general Appropriation, current.. 301 BA 137,978 0 124,293 142,145 c 115 D 4,127 £ 58 154,300 1,343,711 1,467,566 143,205 301 BA A D 36,900 c 871 12,252 E 277 Outlays See footnotes at end of table. 0 1,609,906 1,603,400 A 92,300 1,502,849 427 T H E FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Civil—Con. Corps of Engineers-Civil—Con. Operation and maintenance, general Appropriation, current 301 950,729 0 806,418 848,500 11,288 12,206 £ 106 893,600 BA 0 126,000 19,277 31,500 ""26**600 BA 68,900 82,530 0 64,800 73,200 ° 3,912 £ 188 77,100 BA 0 223,035 233,613 210,515 235,000 228,986 244,986 BA 0 3,300 3,581 4,000 4,000 5,000 4,500 BA 0 3,625 6,841 1,748 1,748 1,748 1,748 BA 0 4,614 6,134 4,952 4,726 5,102 5,102 BA 0 8,239 12,975 6,700 6,474 6,850 6,850 BA 0 46,000 36,588 50,000 48,000 52,525 77,800 545 13,398 BA 833,100 c D Outlays Flood control and coastal emergencies Appropriation, current Outlays General expenses Appropriation, current Outlays Flood control, Mississippi River and tributaries Appropriation, current Outlays Special recreation use fees Appropriation, current Outlays Permanent appropriations: (Water resources) (Appropriation, permanent, indefinite) (Outlays) (Other general purpose fiscal assistance) (Appropriation, permanent, indefinite) (Outlays) 301 81,920 301 303 301 852 Total Permanent appropriations Intragovernmental Funds: Revolving fund Appropriation, current Outlays Consolidated working fund Outlays 939,459 301 301 301 0 Trust funds Inland waterways trust fund Appropriation, current Outlays Rivers and harbors contributed funds Appropriation, permanent, indefinite Outlays 301 30,000 30,000 BA 0 301 BA 0 34,892 31,077 38,000 35,000 39,000 39,000 BA 0 2,790,263 2,911,996 2,884,926 3,159,072 3,014,764 3,021,569 -13 -13 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 271 300 See footnotes at end of table. BA 5A -19,223 -18,377 -19,567 428 T H E B U D G E T FOR FISCAL Y E A R 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Civil—Con. Corps of Engineers-Civil—Con. 902 -2,727 -3,110 -3,420 BA 0 2,768,303 2,890,036 2,863,426 3,137,572 2,991,764 2,998,569 BA 0 34,892 31,077 38,000 35,000 69,000 69,000 3 0 1 BA ~34f892 BA 0 -3,815 -3,000 30,000 30,000 BA 0 2,768,303 2,886,221 2,863,426 3,134,572 3,021,764 3,028,569 Total Federal funds Trust funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public Total Trust funds Total Corps of Engineers-Civil -38,000 -39,000 Ryukyu Islands, Army Summary Federal funds: Deductions for offsetting receipts: Proprietary receipts from the public 8 0 0 BA Total Ryukyu Islands, Army BA 0 4 - 4 1 0 - 4 1 0 - 4 1 0 - 4 1 0 BA 17,529 O 17,624 18,471 ^ 386 c 432 D 379 19,282 ^ 386 -410 -410 Soldiers' and Airmen's Home Trust funds Operation and maintenance Appropriation, current 705 Outlays Payment of claims Appropriation, permanent, indefinite Outlays Soldiers' and Airmen's Home revolving fund Outlays 20,595 20,595 705 BA 0 20 20 5 5 705 O —14 Summary Federal funds: Deductions for offsetting receipts: Proprietary receipts from the public Total Federal funds See footnotes at end of table. 7 0 5 BA , 0 ~J BA - 1 - 1 - 1 0 -1 -1 -1 ~ 429 T H E FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Civil—Con. 1 Soldiers and Airmen's Home—Con. Trust funds: Deductions for offsetting receipts: Proprietary receipts from the public BA 0 17,529 17,610 19,688 19,688 20,600 20,600 BA 0 -1,923 -2,447 -3,025 BA 0 15,606 15,687 17,241 17,241 17,575 17,575 BA 0 15,605 15,686 17,240 17,240 17,574 17,574 BA BA 0 80,168 72,823 BA 0 849 2,002 BA 0 81,017 74,825 0 -459 (30,212) 71,216 0 - 4 5 9 71,216 BA 0 81,017 74,366 The Panama Canal Canal Zone Government Federal funds General and Special Funds: Operating expenses Appropriation, current Outlays Capital outlay 806 806 Outlays.. Panama Canal Company Federal funds Public Enterprise Funds: Corporation: Panama Canal Company 403 Outlays Limitation on general and administrative expenses... Total Federal funds Panama Canal Company Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Intrafund transactions Proprietary receipts from the public 806 800 902 Total The Panama Canal See footnotes at end of table. . 71,216 BA 0 BA o BA 0 —23,671 . -49 , BA 0 8,108 1,457 . 49,189 , 71,216 430 THE B U D G E T FOR FISCAL Y E A R 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Civil—Con. Wildlife Conservation, Military Reservations Federal funds General and Special Funds: Wildlife conservation, Army Appropriation, current Appropriation, permanent, indefinite Outlays Wildlife conservation, Navy Appropriation, current Appropriation, permanent, indefinite Outlays Wildlife conservation, Air Force Appropriation, current Appropriation, permanent, indefinite Outlays 303 400 768 1,109 BA BA 0 674 598 743 737 BA BA 0 100 78 94 90 BA BA 0 139 126 140 130 600 140 740 BA 913 0 802 977 957 2,529 2,479 -913 -977 -1,029 -Ill -20 1,500 1,450 2,894,229 3,238,245 3,022,593 3,029,248 303 500 121 630 303 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public 300 BA O Total Wildlife Conservation, Military Reservations BA 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Intrafund transactions Proprietary receipts from the public BA 0 8 0 6 BA 271 O 2,877,293 2,992,722 -23,671 BA -10 0 300 BA 0 -20,136 705 BA O 902 BA O Total Federal funds BA 0 Trust funds: (As shown in detail above) BA O Deductions for offsetting receipts: Proprietary receipts from the public 301 BA O See footnotes at end of table. -19,354 -13 -20,596 -1 -1 -410 -410 -3,110 -3,420 2,781,100 2,896,529 2,871,341 3,215,357 2,998,153 3,004,808 52,421 48,687 57,688 54,688 89,600 89,600 0 8 0 0 BA -13 -49,599 —2,776 -34,892 38,000 -39,000 431 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Defense-Civil—Con. , Summary—Con. 705 BA 0 -1923 -2,447 -3,025 BA 0 15,606 11,872 17,241 14,241 47,575 47,575 „ , BA 0 2,796,706 2,908,401 2,888,582 3,229,598 3,045,728 3,052,383 BA 3,681,956 0 1,919,474 4,094,172 J 900,000 3,631,277 '50,000 Total Trust funds Total Department of Defense-Civil Department of Education Office of Elementary and Secondary Education Federal funds Genera) and Special Funds: Elementary and secondary education Appropriation, current 501 Outlays School assistance in federally affected areas Appropriation, current Outlays Equal educational opportunities Appropriation, current Outlays Libraries and learning resources Appropriation, current Outlays Indian education Appropriation, current Outlays Elementary and secondary education Appropriation, current Outlays Library resources Appropriation, current Outlays 501 BA 0 816,100 911,587 805,000 821,103 519,000 553,942 BA 0 341,350 317,078 323,773 298,646 359,013 321,699 BA 185,988 0 148,195 251,500 * 12,988 255,801 501 503 501 BA 71,735 0 60,581 75,900 D 89 69,856 100,950 BA 0 3,671,282 3,133,227 60,000 1,489,560 BA 0 266,475 255,888 67,500 128,580 BA 0 5,166,942 4,678,361 5,200,206 4,875,414 6,237,623 4,895,658 BA BA 0 976,637 1,049,025 2,235 788,939 1,102,050 82,939 501 503 Total Federal funds Office of Elementary and Secondary Education Office of Special Education and Rehabilitative Services Federal funds General and Special Funds: Education for the handicapped Appropriation, current Reappropriation Outlays See footnotes at end of table. 501 589,120 968,506 T H E B U D G E T FOR FISCAL Y E A R 1981 432 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Education—Con. Office of Special Education and Rehabilitative Services—Con. Rehabilitation services and handicapped research 506 Appropriation, current Outlays BA 0 Total Federal funds Office uf Special Education and Rehabilitative Services BA 395,984 449,802 963,875 957,334 0 976,637 589,120 1,447,244 1,238,741 2,065,925 1,925,834 BA BA 0 774,453 7,161 772,075 889,035 7,161 854,888 925,635 7,161 907,913 BA 3,753,650 3,056,935 BA 0 2,871,316 544,034 3,412,695 BA 957,503 959,621 Office of Vocational and Adult Education Federal funds General and Special Funds: Vocational and adult education 501 Outlays.. Office of Postsecondary Education Federal funds General and Special Funds: Student financial assistance Appropriation, current 502 * 3,305,750 Reappropriation Outlays.... Student loan insurance Appropriation, current 1419,926 502 A 661,798 '59,900 Authority to borrow, current BA Outlays O 25,000 897,944 A Higher and continuing education Appropriation, current Appropriation, permanent, indefinite Outlays See footnotes at end of table. '485/X)0 941,661 A 168,457 '91,249 502 BA < GC <* CO Appropriation, permanent Reappropriation Outlays Higher education facilities loan and insurance Appropriation, current 975,489 493,341 393,000 405,730 2,700 478 564,623 2,700 * 390,539 '20,000 2,700 376,215 371,040 2,204 2,189 871 5,636 832 4,828 502 BA * 1,656 708 3,538 433 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Accounl and tunctonal code 1980 estimate 1931 estimate Department of Education—Con. Office of Postsecondary Education—Con. Public Enterprise Funds: College housing loans Appropriation, current Appropriation, permanent. Outlays 502 BA BA 0 Total Federal funds Office of Postsecondary Education BA 0 13,097 241 -3,414 5,148,744 4,336,105 12,117 134 8,405 5,546,090 5,270,973 14,271 179 17,099 5,403,349 5,012,970 Office of Educational Research and Improvement Federal funds General and Special Funds: Educational statistics Appropriation, current Outlays Research and related activities Appropriation, current 503 BA 0 7,795 1,715 11,793 5,348 503 Outlays School improvement programs 501 Appropriation, current Outlays Educational development 503 Outlays Salaries and expenses, Assistant Secretary for Education 502 Appropriation, current Outlays National Institute of Education 503 Appropriation, current Outlays Special projects and training 503 Appropriation, current Outlays Total Federal funds Office of Educational Research and Improvement BA 51,907 0 37,026 * 105,050 87,004 157,783 91,342 210,523 185,682 BA 0 0 101 500 500 BA 0 36,650 28,461 7,821 23,064 BA 0 94,133 70,629 45,586 43,993 BA 0 122,272 103,177 38,295 49,125 BA 0 253,055 202,368 309,187 246,765 327,366 278,534 BA 0 3,906 3,906 4,349 4,349 4,921 4,921 BA 0 16,625 16,463 17,349 17,413 20,305 20,305 BA 0 44,833 49,415 48,341 52,276 49,768 49,768 Special Institutions Federal funds General and Special Funds: American Printing House for the Blind Appropriation, current Outlays National Technical Institute for the Deaf Appropriation, current Outlays Gallaudet College Appropriation, current Outlays See footnotes at end of table. 310-000 0 - 60 - 29 501 502 502 T H E B U D G E T FOR FISCAL Y E A R 1981 434 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1981 estimate 1980 estimate 1979 actual Account and functional code Department of Education—Con. Special Institutions—Con. 502 Howard University Appropriation, current Outlays BA 0 113,393 104,494 121,893 112,434 133,983 125,460 BA 0 178,757 174,278 191,932 186,472 208,977 200,454 23,122 °891 22,079 49,215 155,707 A 1,775 * 7,447 160,936 A 1,598 244,181 1,500 1,980 3,000 3,573 3,000 3,152 7,852 10,900 Office of Civil Rights Federal funds General and Special Funds: Salaries and expenses 751 BA Outlays.. 46,828 Departmental Management Federal funds General and Special Funds: Salaries and expenses: (Research and general education aids) (Appropriation, current) 503 (Outlays) BA 126,553 0 130,781 Educational, research and training activities overseas: (Special foreign currency program) 503 (Appropriation, current) BA (Outlays) 0 Institute of Museum Services 503 Appropriation, current BA 201,350 M77 .. * 12,900 Z>22 Outlays. .. 0 9,956 389 8,950 BA 0 38 75 94 Total Federal funds Departmental Management... BA 135,905 133,150 178,851 175,057 38 75 94 12,641,654 10,885,457 13,893,719 12,870,389 15,485,332 13,482,826 -5,477 -5,625 -2,975 Trust funds Special statistical compilations and surveys Appropriation, permanent, indefinite Outlays 503 0 Total Trust funds Departmental Management BA O 260,081 214,635 . Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public BA 0 5 0 0 BA O See footnotes at end of table. 435 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Education—Con. Summary—Con. 902 BA —791 0 Total Federal funds Deductions for offsetting receipts: Proprietary receipts from the public Total Department of Education 15,481,724 13,479,218 12,635,386 10,879,189 13,887,470 12,864,140 BA 38 75 94 503 BA Total Trust funds -633 BA 0 Trust funds: (As shown in detail above) -624 0 -38 0 37 94 12,635,386 10,879,226 13,887,470 12,864,234 BA 0 15,481,724 13,479,218 Department of Energy Atomic Energy Defense Activities Federal funds General and Special Funds: Atomic energy defense activities - operating expenses 053 Appropriation, current BA 2,185,830 2,371,147 * 2,794,723 fi Outlays 0 Atomic energy defense activities - plant and capital equipment 053 Appropriation, current BA 2,086,666 482,158 34,700 D 2,346 2,330,720 * 29,700 2,736,594 * 5,000 588,249 * 648,505 A Outlays 454,195 9,300 613,041 A 6,350 BA 0 2,667,988 2,540,861 3,005,742 2,979,811 BA 309,306 341,900 0 Total Federal funds Atomic Energy Defense Activities 641,204 2,950 A 3,443,228 3,385,748 Energy Programs Federal funds General and Special Funds: General science and research penses Appropriation, current • operating ex251 * 376,695 D 45 Outlays See footnotes at end of table. 0 304,811 336,345 371,050 T H E B U D G E T FOR FISCAL Y E A R 1981 436 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Energy—Con. Energy Programs—Con. General science and research - plant and capital equipment 251 Outlays Energy supply, R&D - operating expenses Appropriation, current i BA 121,700 130,000 0 120,681 125,710 2,029,961 2,220,923 * 146,200 136,922 2 7 1L BA * 2,349,904 5 2,295,837 0 Outlays 11,156 D 1,670 "7,000 2,280,735 B 3,156 ^4,250 2,242,665 * 8,000 "7,750 Energy supply, R&D - plant and capital equipment 271 BA BA Appropriation, current 462,129 448,478 * 401,147 B 0 Outlays Uranium enrichment - operating expenses 2,500 461,077 «1,000 337,477 433,779 1,500 271 BA 51,636 60,523 307,600 0 187 400,000 1,734 A 307,600 208,940 1,300 A BA 0 Outlays.. Uranium enrichment - plant and capital ment 8,281 213,350 equip271 Outlays Fossil fuel - operating expenses 112,733 4,000 400,000 56,981 BA 660,876 746,627 54,809 23,443 271 Outlays Fossil energy construction BA BA O 0 713,158 *69U50 * 24,000 D 1,786 753,235 * 16,150 698,179 B 7,850 271 Outlays Energy production, demonstration and distribution BA 99,709 103,250 0 12,924 139,301 BA BA 172,519 111,221 130,841 ^ 566 128,050 * 449,835 209,700 271 Appropriation, current Outlays See footnotes at end of table. 0 K 178,737 224,333 437 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Energy—Con. Energy Programs—Con. Energy conservation: (Energy conservation) (Appropriation, current). 272 BA 610,848 5,000 * 912,284 578,702 B 27,392 D m (Reappropriation) (Outlays) (Area and regional development) (Appropriation, current) BA 0 251,733 158,750 579,644 * 13,820 BA 20,000 50,000 24 10,450 * 150,000 62,100 815,547 603,914 1,067,284 855,498 K 103,978 2,300,000 1,294,400 452 (Outlays) 0 Total Energy conservation.. BA 0 630,848 251,757 BA 3,007,746 BA 0 1,020,727 767,105 BA 65,644 87,273 Strategic petroleum reserve Appropriation, current Reappropriation Outlays Energy information administration Appropriation, current 783,298 * 10,100 274 276 . * 116,223 B OutlaysEconomic regulation Appropriation, current.. 0 61,341 BA 99,233 20,200 D 935 86,161 * 20,200 116,173 276 152,879 * 162,471 Outlays.. Federal Energy Regulatory Commission Appropriation, current Reappropriation Outlays Energy security reserve Appropriation, current Outlays Payments to states under Federal Power Act Appropriation, permanent, indefinite Outlays See footnotes at end of table. 81,699 BA 54,130 156,186 20,000 B 276 0 Outlays.. Geothermal resources development fund Appropriation, current 0 * 43,000 * 2,523 149,404 * 23,000 50,240 67,187 K 2,300 * 2,435 67,269 fl 2,300 76,374 75,587 271 BA 204 BA 0 376 181 D 1,284 7 1,397 41,982 1,247 2,208,000 155,000 53,000 85 85 85 85 271 BA 0 852 BA 0 85 218 T H E B U D G E T FOR FISCAL Y E A R 1981 438 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Energy—Con. Energy Programs—Con. Public Enterprise Funds: Spent fuel storage fund Authority to borrow, current, indefinite Outlays 271 '300,000 BA 0 '-100,000 '200,000 Trust funds Advances for cooperative work Appropriation, permanent, indefinite Outlays 271 BA 0 3,967 2,653 12,996 13,309 14,903 14,873 Total federal funds Energy Programs BA 0 7,820,535 5,503,101 9,025,984 6,391,159 8,674,089 7,345,697 Total Trust funds Energy Programs BA 0 3,967 2,653 12,996 13,309 14,903 14,873 BA 2,614 2,660 ' Outlays 0 Public Enterprise Funds: Bonneville Power Administration fund 271 Outlays 0 General and Special Funds: Operation and maintenance, Southeastern Power Administration 271 Appropriation, current BA 2,322 2,660 * 3,069 3,069 59,137 -128,140 -84,500 Power Marketing Administrations Federal funds General and Special Funds: Operation and maintenance, Alaska Power Administration 271 Appropriation, current Outlays 0 Continuing fund, Southeastern Power Administration 271 Appropriation, permanent BA Outlays 0 General and Special Funds: Operation and maintenance, Southwestern Power Administration 271 Appropriation, current BA 1,253 1,400 1,028 1,475 * 1,552 1,544 50 50 36,077 32,180 * 28,208 *208 Outlays Continuing fund, Southwestern Power Administration 271 Appropriation, permanent Outlays Construction, rehabilitation, operation and maintenance, Western Area Power Administration 271 Appropriation, current Outlays See footnotes at end of table. 0 19,896 32,388 BA 0 228 129 99 BA 103,252 122,800 79,053 122,800 0 37,208 rzirz * 138,502 138,502 439 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1981 estimate 1980 estimate Department of Energy-- C o n . Power Marketing Administrations—Con. Emergency fund, Western Area Power Administration 271 Appropriation, current BA Outlays 0 Public Enterprise Funds: Colorado river basins power marketing fund, Western Area Power Administration 271 Appropriation, current BA 200 200 200 2,286 5,152 -7,299 5,152 * 3,548 3,548 0 BA 145,960 154,316 164,600 36,634 175,079 99,571 BA 231,180 264,294 Outlays Total Federal funds Power Marketing Administrations 200 200 Departmental Administration Federal funds General and Special Funds: Departmental administration: (Energy information, policy, and regulation) 276 (Appropriation, current) * 361,721 B (Outlays) Special foreign currency program Appropriation, current Outlays 239,153 0 8,233 D 6,396 276,428 * 4,483 339,548 8 2,800 271 BA 0 2,000 40 69 75 Total Federal funds Departmental Administration. BA 233,180 239,193 278,923 280,980 361,721 342,423 10,867,663 8,437,471 12,475,249 9,688,584 12,654,117 11,173,439 -59,137 -72,166 -73,956 0 Summary Federal funds: (As shown in detail above) Deductions for offsetting receipts: Proprietary receipts from the public BA 0 270 BA 0 2 7 1 BA -478,429 -1,920,296 -2,393,481 3 0 0 BA -5,119 -15,500 -16,740 902 BA -13 0 0 0 Total Federal funds BA 0 Trust funds: (As shown in detail above) BA 0 See footnotes at end of table. - 1 - 1 10,324,965 7,894,773 10,467,286 7,680,621 10,169,939 8,689,261 3,967 2,653 12,996 13,309 14,903 14,873 T H E B U D G E T FOR FISCAL Y E A R 1981 440 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1981 estimate estimate Department of Energy—Con. Summary—Con. Deductions for offsetting receipts: Proprietary receipts from the public 2 7 1 BA 0 0 0 Total Trust funds , , BA 0 -3,967 -12,996 — 1,314 313 10,324,965 7,893,459 10,467,286 7,680,934 -14,903 -30 10,169,939 8,689,231 Department of Health and Human Services Health Programs Public Health Service Food and Drug Administration Federal funds General and Special Funds: Salaries and expenses 554 Outlays Buildings and facilities 554 Appropriation, current Outlays Public Enterprise Funds: Revolving fund for certification and other services 554 Outlays Total Federal funds Food and Drug Administration 332,799 297,811 312,796 c 276 D 10,420 *756 303,938 10,459 2,096 4,372 4,801 29,663 7,797 BA 301,954 0 BA 0 305,925 -73 0 312,413 299,834 328,620 308,739 362,462 313,722 BA BA 1,265,311 1,367,903 1,303,448 * 133,832 BA Health Services Administration Federal funds General and Special Funds: Health services Appropriation, current 551 c 1,378 6,692 * 2,183 w 10,825 1,237,603 * 9,093 D Outlays.. Indian health services Appropriation, current Outlays See footnotes at end of table. 0 1,183,174 551 BA BA 492,193 0 465,345 538,874 c 700 D 7,043 £ 2,155 526,239 1,260,228 * 1,732 601,819 588,621 441 THE FEDERAL PROGRAM BY AGENCY AND ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Health and Human Services—Con. Health Programs—Con. Public Health Service—Con. Health Services Administration—Con. Indian health facilities Appropriation, current Outlays Emergency health Outlays 551 BA 0 75,960 90,110 74,302 76,691 76,670 84,124 054 0 Total Federal funds Health Services Administration 3 19 BA 0 1,834,464 1,738,632 2,012,060 1,849,645 2,115,769 1,934,705 BA 201,472 211,863 0 182,947 181,659 305,331 K 3,000 223,129 BA 0 62,500 55,388 79,552 64,265 82,705 80,197 Total Preventive health services BA 0 263,972 238,335 291,415 245,924 391,036 303,326 Total Federal funds Center for Disease Control.... BA 0 263,972 238,335 291,415 245,924 391,036 303,326 BA 914,953 982,967 0 840,940 970,710 -2,133 0 3,256 £ 425 868,760 —2,133 Center for Disease Control Federal funds General and Special Funds: Preventive health services: (Health care services) (Appropriation, current) 551 (Outlays) (Health research) (Appropriation, current) (Outlays) 552 National Institutes of Health Federal funds General and Special Funds: National Cancer Institute: (Health research) (Appropriation, current) 552 (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Cancer Institute See footnotes at end of table. A A 895,202 BA 0 21,784 20,265 29,290 27,178 24,833 23,800 BA 0 936,737 861,205 1,001,548 893,805 1,007,800 919,002 442 T H E B U D G E T FOR F I S C A L Y E A R 1981 BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1980 estimate 1979 actual Account and functional code 1981 estimate Department of Health and Human Services—Con. Health Programs—Con. Public Health Service—Con. National Institutes of Health—Con. National Heart, Lung and Blood Institute: (Health research) (Appropriation, current) 552 (Outlays) BA 487,534 0 433,884 A A (Education and training of health care work 553 force) (Appropriation, current) (Outlays) Total National Heart, Lung and Blood Institute.... National Institute of Dental Research: (Health research) (Appropriation, current) 492,102 —1,193 D 1,171 E 146 453,743 —1,193 515,259 BA 0 22,600 20,113 35,442 23,310 33,140 29,716 BA 0 510,134 453,997 527,668 475,860 548,399 491,735 BA 61,374 63,562 —217 z>494 66,128 552 A (Outlays) 0 62,699 A (Education and training of health force) (Appropriation, current) (Outlays) National Institute of Arthritis, Metabolism, and Digestive Diseases: (Health research) 552 (Appropriation, current) BA 0 3,839 3,924 4,756 4,465 4,323 4,221 BA 0 65,213 66,623 68,684 68,654 70,451 69,442 BA 287,237 349,828 0 247,485 318,473 D 1,434 £ 150 307,273 22,773 1,012 17,131 —1,012 15,883 341,818 323,392 365,711 346,292 BA 15,530 0 15,530 A Total National Institute of Arthritis, Metabolism. and Digestive Diseases 65,221 325,241 care work 553 (Outlays) See footnotes at end of table. *89 64,406 —217 care work 553 Total National Institute of Dental Research (Outlays) (Education and training of health force) (Appropriation, current) 462,019 BA 0 302,767 263,015 21,051 443 THE FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 198! estimate Department of Health and Human Services—Con. Health Programs—Con. Public Health Service—Con. National Institutes of Health—Con. National Institute of Neurological and Communicative Disorders and Stroke: (Health research) 552 (Appropriation, current) BA 204,338 232,533 —427 "704 *53 211,494 A -427 242,163 A (Outlays) 0 (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Institute of Neurological and Communicative Disorders and Stroke National Institute of Allergy and Infectious Diseases: (Health research) 552 (Appropriation, current) (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Institute of Allergy and Infectious Diseases National Institute of General Medical Sciences: (Health research) (Appropriation, current) Total National institute of General Medical Sciences BA 0 8,027 7£93 BA 0 212,365 194,234 242,330 219,215 249,807 237,397 BA 182,703 204,969 * —564 °713 M21 219,610 0 160,300 184,956 —564 206,672 10,433 p 8,802 9,437 8,276 BA 8,625 0 7,571 9,467 8,148 228,637 A n 7,644 8,760 BA 0 191,328 167,871 215,683 193,829 228,412 214,948 BA 230,431 275,263 0 201,793 263,110 ®150 217,689 BA 0 47,197 44,716 49,368 44,142 56,376 44,690 BA 0 277,628 246,509 312,628 261,831 331,639 301,418 552 (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) See footnotes at end of table. 186,641 256,728 444 T H E B U D G E T FOR FISCAL Y E A R 1981 BUDGET ACCOUNTS LISTING (In thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1981 estimate Department of Health and Human Services—Con. Health Programs—Con. Public Health Service—Con. National Institutes of Health—Con. National Institute of Child Health and Human Development: (Health research) 552 (Appropriation, current) BA 187,181 198,301 -236 D 707 208,516 176,710 —236 190,672 10,680 9,467 9,015 10,214 209,549 185,941 217,531 200,886 107,872 —265 "440 E9 113,187 112,201 —265 123,388 5,128 —250 4,769 —250 3,375 A (Outlays) 0 (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Institute of Child Health and Human Development National Eye Institute: (Health research) (Appropriation, current) BA 0 155,331 A 10,449 8,921 BA 0 197,630 164,252 BA 100,479 552 A (Outlays) 0 72,679 A (Education and training of health care work force) 553 (Appropriation, current) BA 4,713 A (Outlays) 0 4,074 A Total National Eye Institute National Institute of Environmental Health Sciences: (Health research) 552 (Appropriation, current) (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Institute of Environmental Health Sciences See footnotes at end of table. 3,139 BA 0 105,192 76,753 112,934 116,455 116,562 126,527 BA 73,082 90,087 0 60,550 76,886 D 381 £ 13 72,212 7,026 6,477 7,182 6,611 84,306 78,689 97,269 90,433 BA 0 BA 0 4,998 4,178 78,080 64,728 83,822 445 T H E FEDERAL PROGRAM BY AGENCY A N D ACCOUNT BUDGET ACCOUNTS LISTING (in thousands of dollars)—Continued 1979 actual Account and functional code 1980 estimate 1921 estimate Department of Health and Human Services—Con. Health Programs—Con. Public Health Service—Con. National Institutes of Health—Con, National Institute of Aging: (Health research) (Appropriation, current) 552 (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total National Institute of Aging Research resources: (Health research) (Appropriation, current) BA 54,367 0 40,033 BA 0 2,544 1,873 67,012 "184 *44 56,104 72,966 2,988 2,564 2,351 2£84 67,094 BA 0 56,911 41,906 70,228 58,668 75,317 69,378 BA 153,629 168,522 "92 183,710 0 158,821 160,236 162,447 552 *11 (Outlays) (Education and training of health care work force) 553 (Appropriation, current) (Outlays) Total Research resources John E. Fogarty International Center for Advanced Study in the Health Sciences 552 Appropriation, current BA 0 535 434 677 614 729 690 BA 0 154,164 159,255 169,302 160,850 184,439 163,137 BA 8,989 8,989 9,181 D 100 *6 Outlays National Library of Medicine: (Health research) 552 (Appropriation, current) (Outlays) (Education and training of health care work force) 553 (Appropriation, current) 0 6,706 BA 0 9,782 9,221 8,801 10,653 9,902 9,767 10,610 34,963 44,730 42,839 BA 31,649 (Outlays) 0 29,988 33,347 D 640 £ 17 31,486 Total National Library of Medicine BA 0 41,431 39,209 44,657 41,388 See footnotes at end of table. 8,880 32,229 446 T H E B U D G E T FOR FISCAL Y E A R