August 27, 1976
Page 28153
Mr. MUSKIE. This table shows that the budget authority target of $24.6 billion adopted in the first budget resolution for function 500 included $11.3 billion to cover all education programs for fiscal 1977. The Senate has already passed appropriations totaling $7.5 billion, leaving $3.8 billion for education not yet appropriated. Based on the assumptions used in developing the budget targets last spring, $3.2 billion of this $3.8 billion would be required for the programs included in S. 2657, leaving only $600 million in the congressional budget for all other education initiatives, including supplementals for those programs already considered in the regular appropriations bills.
However, the Appropriations Committee's latitude for education appropriations action must also be measured against their own allocations of the congressional budget by subcommittee, if we are to stay within the overall congressional budget ceiling. It is equally important that we examine the opportunity for higher education funding from the viewpoint of that Appropriations Committee allocation as well. Mr. President, I ask unanimous consent to have printed a table from the latest Senate scorekeeping report which shows the potential budget status for programs funded by the Labor-HEW Subcommittee of Appropriations.
There being no objection, the table was ordered to be printed in the RECORD, as follows:
[Table omitted]
Mr. MUSKIE. This table indicates that appropriations action thus far leaves a remainder of $9.5 billion for supplementals covering not only education but all other Labor and HEW programs as well. But additional likely requirements add to $18 billion. Thus, a potential overrun of $500 million in budget authority may occur for that subcommittee allocation if these possible supplementals are enacted. Significantly, the list of likely supplemental demands does not include the $600 million for education which the congressional budget contemplated. What has happened is that higher spending than anticipated is now likely in other areas — for example, $900 million due to medicaid re-estimates and $300 million for other health supplementals. The very tight funding situation for these other HEW programs must be kept in mind in the consideration of S. 2657, since one provision of this bill will put great pressure on the appropriations committee to increase higher education spending.
That provision relates to the basic education opportunity grants, or BEOG program. When the budget resolution was developed, BEOG's was assumed to continue on a fully funded basis at the current maximum grant level of $1,400. However, the bill before us today would raise the level to $1,800, increasing program costs by over $400 million. On a fully-funded basis, this provision and others relating to BEOG's and the guaranteed student loan program could use up $500 of the $600 million remaining in our target for education, and would add $500 million to the expected overrun for the Labor-HEW subcommittee. That would bring the total overrun to $1 billion.
Of course, the Appropriations Committee is not obligated to fund BEOG's in full, but the alternatives are not promising. Less than full funding could mean ratable reductions in individual students' grants or some other unpopular program limitation such as limiting the program to full time students. So appropriations will be under considerable pressure to fund BEOG's at the higher grant level.
It is in this light that, the assurance obtained by Senator BELLMON this morning regarding the likely BEOG funding levels are vitally important to our ability to stay within the overall congressional budget targets.
I hope this information will help my colleagues as they consider appropriations for the bill before us and the many amendments that have been offered. We are rapidly approaching the point where the remaining balances in the education budget target will be spent, especially if the BEOG provision should be fully funded. We are past that point so far as appropriations is concerned, if BEOG's is fully funded, other important education programs may be crowded out, since we must stay within the budget.
Again, I want to thank Senator BELL MON and the other Senators involved in this colloquy for their contribution to our joint efforts to stay within the budget.
I will simply try in 2 minutes to emphasize what I suspect has already been said. I have not heard all of the debate, but some of it.
First of all, with respect to the budget resolution which the Congress adopted this spring, this bill is consistent with the sums provided for education in the budget resolution which Congress adopted this spring.
Based on the assumptions used last spring $600 million is left in the congressional budget for all other education initiatives, including this bill and any other education supplementals for education of the disadvantaged or handicapped children, to name a few.
However, the fact is that given Labor/HEW appropriations actions to date, $9.5 billion remains for supplementals covering not only education but all other Labor and HEW programs as well.
But additional likely requirements add up to$1.0 billion. So that without the BEOG program and without the guaranteed student loan program there is a potential $500 million overrun if all of the likely future requirements are funded.
The Appropriations Committee, of course, has the discretion not to fund all of the likely additions. But that discretion, I would suggest, is very limited, as the Senator from Alaska has already indicated.
If we fully fund these proposed changes in the BEOG's and guaranteed student loan programs, the overrun projected for the Labor/HEW Subcommittee would expand from the currently projected $500 million to $1.0 billion.
One of the tables I have included in the RECORD is from page 32 of the current scorekeeping report. If you will refer to that page and focus on the possible later requirements, you will get some indication of the kinds of programs and attendant funding levels that are likely to absorb and exceed by $500 million the unappropriated slack remaining in the Labor/HEW Subcommittee budget allocations.
Frankly, Mr. President, it seems very unlikely that the Appropriations Committee could fully fund unappropriated programs at levels assumed in the first concurrent resolution, and in addition fund the $1,800 BEOG's grant or the guaranteed student loan program in this fiscal year and stay under the budget targets.
The PRESIDING OFFICER. The Senator's time has expired.
Mr. MUSKIE. I ask unanimous consent, Mr. President, for 1 minute.
The PRESIDING OFFICER. Without objection, it is so ordered.
Mr. MUSKIE. The Senator from Alaska has asked whether the Budget Committee would give the Appropriations Committee another $500 million. Well, we do not carry a bag of money around with us. The budget resolution sets the targets, and it is those targets we are talking about, and the pressures on the educational function are very great indeed.
If I were on the Appropriations Committee, I would contemplate with considerable trepidation the task of trying to fit everything into the available dollars that is now on the list of desirable possibilities.
The PRESIDING OFFICER. All time has expired. The yeas and nays have not been ordered.
Mr. BELLMON. Mr. President, I ask unanimous consent that I may proceed for 1 minute, with the intention of withdrawing the amendment after an explanation.
The PRESIDING OFFICER. Without objection, it is so ordered.
Mr. BELLMON. Mr. President, there seems to be agreement here between the members of the Labor and Public Welfare Committee and all concerned that we will try to live within the functional totals set up by the congressional budget resolution; and on that basis that we will have to stay somewhere around the $1.5 billion for these programs for fiscal year 1977. We also, I believe, have a good understanding now of what we are up against here, and I believe the amendment I have offered will not be necessary.
Therefore, Mr. President, I ask unanimous consent that it be withdrawn.
The PRESIDING OFFICER. Without objection, the amendment is withdrawn.