Introduction

Congressional office spending has been a regular topic of interest to academics, interest groups, newspapers, and constituents for many years. It is a topic frequently mentioned in newspaper articles that address individual Member spending or generally discuss financial accountability among elected officials, and it has been examined by watchdog organizations and interest groups covering congressional spending on internal operations generally. A few scholars have also examined how Members typically spend their office allowances, analyzing spending within broader theories of representation.¹ Individual office spending may be as varied as the districts Members represent. Factors affecting spending include the tenure or interests of the Member, levels of casework, geography, unexpected events, and even the congressional calendar.

While Representatives have a high degree of flexibility to operate their offices in a way that supports their congressional duties and responsibilities, they must operate within a number of restrictions and regulations. The Members' Representational Allowance (MRA), the allowance provided to Members of the House of Representatives to operate their Washington, DC, and district offices,² may only support Members in their official and representational duties. It may not be used for personal or campaign purposes. Additional regulations or restrictions regarding reimbursable expenses may be promulgated by the Committee on House Administration, the Commission on Congressional Mailing Standards, also known as the Franking Commission, and the Committee on Standards of Official Conduct, and may be found in a wide variety of sources, including statute, House rules, committee resolutions, the Members' Handbook,³ the Franking Manual,⁴ the House Ethics Manual, "Dear Colleague" letters, and formal and informal guidance.⁵

This report provides a history of the MRA and overview of recent developments. It also demonstrates actual MRA spending patterns in recent years for all voting Members who served for a defined period.⁶ Spending and practices across offices and across time vary, and an examination of additional Congresses would be required for a more complete picture of congressional office spending patterns.

Establishment of the MRA

The MRA, which was first authorized in 1996, was preceded by multiple allowances for each Member covering different categories of spending—including the former clerk hire allowance, official expenses allowance, and official mail allowance. The establishment of the MRA followed efforts by the House, dating back to the late 1970s, to move to a system of increased flexibility and accountability for Member office operations.⁷

In September 1995, the Committee on House Administration authorized the consolidation of these allowances.⁸ Subsequently, in November 1995, the FY1996 Legislative Branch Appropriations Act combined the separate appropriations for personal office staff, official office expenses, and mail costs into a single new appropriations heading, "Members' Representational Allowances."⁹ According to the House Appropriations Committee report on the FY1996 bill, the consolidation was adopted to simplify Members' accounting practices and allowed Members to more easily show savings achieved when they did not spend all of their allowance.¹⁰ Subsequent legislation in 1996 further defined the MRA and made it subject to regulations and adjustments adopted by the Committee on House Administration.¹¹ Additional provisions included in the FY2000 Legislative Branch Appropriations Act amended language regarding official mail and repealed obsolete language and terms.¹²

Subsequent MRA Legislation

Appropriations Acts: Administrative Provisions Related to Unexpended Balances and Deficit Reduction

Since the MRA's establishment, appropriations acts funding the legislative branch have contained—or continued, in the case of a continuing resolution—a provision requiring unused amounts remaining in the MRA be used for deficit reduction or to reduce the federal debt.¹³

This provision was included in legislative branch appropriations bills reported by the House Appropriations Committee in FY1999 and since FY2002. In some years prior to consideration of FY2002 funding, it was added by amendment, including

• H.Amdt. 458 (403-21, Roll no. 415) to H.R. 1854, 104^th Congress (Legislative Branch Appropriations Act, 1996);
• H.Amdt. 1245 (voice vote) to H.R. 3754, 104^th Congress (Legislative Branch Appropriations Act, 1997);
• H.Amdt. 287 (voice vote) to H.R. 2209, 105^th Congress (Legislative Branch Appropriations Act, 1998);
• H.Amdt. 166 (voice vote) to H.R. 1905, 106^th Congress (Legislative Branch Appropriations Act, 2000); and
• H.Amdt. 865 (voice vote) to H.R. 4516, 106^th Congress (Legislative Branch Appropriations Act, 2001).

Other MRA Legislation Introduced

In addition to the appropriations language, numerous bills and resolutions addressing the MRA have been introduced (for examples, see tables in the Appendix). This legislation has generally fallen into three major categories:

• Attempts to change the MRA procedure or regulate, prohibit, authorize, disclose, or encourage the use of funds for a particular purpose.
• Stand-alone legislation that would govern the use of unexpended balances, including language to require these funds to go toward deficit reduction.
• Bills or resolutions that would limit or change the growth of overall MRA or adjustment among Members.

MRA-related amendments have also been offered to the legislative branch appropriations bills. These include

• H.Amdt. 213, which was offered to H.R. 3219, the FY2018 legislative branch appropriations bill, increasing funding for the Government Accountability Office, offset by a reduction in the Members' Representational Allowance, which failed by voice vote.
• H.Amdt. 214, which was offered to H.R. 3219, the FY2018 legislative branch appropriations bill, relating to the use of the Members' Representational Allowance for Member security, was agreed to by voice vote.
• H.Amdt. 642, which was offered to H.R. 4487, the FY2015 Legislative Branch Appropriations Act, on May 1, 2014. This amendment, which would have prohibited the use of the MRA for leased vehicles, excluding mobile district offices and short-term vehicle rentals, was not agreed to by a recorded vote (Roll no. 188).
• H.Amdt. 1284, which was offered to H.R. 5882, the FY2013 Legislative Branch Appropriations Act, on June 8, 2012. This amendment, which would have prohibited paid advertisements on any internet site other than an official site of the Member, leadership office, or committee involved, was not agreed to by a recorded vote (Roll no. 375).
• H.Amdt. 708, which was offered to H.R. 2551, the FY2012 Legislative Branch Appropriations Act, on July 21, 2011. The amendment, which prohibited the use of funds to make any payments from any MRA for the leasing of a vehicle in an amount that exceeds $1,000 in any month, was agreed to by voice vote. This language was included in P.L. 112-74 and subsequent legislative branch appropriations acts. H.Amdt. 709 and H.Amdt. 710, which also proposed restrictions on the MRA, failed by voice vote.

Expenses Related to the Coronavirus Pandemic: Additional Flexibilities

The Coronavirus Aid, Relief, and Economic Security Act (CARES Act, P.L. 116-136, enacted March 27, 2020) provided additional funding to allow legislative branch entities "to prevent, prepare for, and respond to coronavirus, domestically or internationally." Funding included $25.0 million for the "House of Representatives, Salaries and Expenses." This account funds all activities of the House, but it does not fund salaries of Members of Congress.

Although individual MRA levels were not adjusted, Member offices were provided with additional flexibilities due to the COVID-19 pandemic. On March 16, 2020, the Committee on House Administration (CHA) issued a "Dear Colleague" letter stating that, while ordinary commuting expenses are not reimbursable, staff experiencing "unique commuting expenses associated with the coronavirus" could seek reimbursement.¹⁴ CHA also "authorized Member and Committee Offices to use their remaining LY19 funds towards unanticipated expenses for teleworking equipment, teletownhalls, and supplies. Acceptable purchases include desktop computers, laptops, tablets, docking stations, monitors, keyboards, mice, printers, multi-function printers (scanner/fax/copier/printer), toner, and cell phones for continuity of operations (COOP)."¹⁵ Offices could also use available legislative year 2020 funds. CHA adopted new regulations governing House paid interns due to the circumstances of the pandemic, including allowing funds to be used for interns in district offices, allowing paid interns to telework, and allowing House offices to issue paid interns House equipment such as laptops or phones.¹⁶ Face masks purchased for official business were also deemed reimbursable.¹⁷ Additional telework support, including technical assistance and training and COOP planning, was also provided by the House Chief Administrative Officer (CAO) and the House Sergeant at Arms. In addition, the CAO "purchased several hundred plexiglass barriers of various types," and the purchase of additional barriers by House offices would be considered a reimbursable expense.¹⁸

Other Structural Changes

Discussions Regarding Potential Revisions to the MRA Formula

Many of the components of the MRA formula predate the establishment of the MRA in September 1995. The long-standing nature of the formula, as well as efforts to reexamine it, have periodically been addressed by the House since 1995. For example, in a December 13, 1995, "Dear Colleague" letter, the Committee on House Oversight (the name of the Committee on House Administration during the 104^th and 105^th Congresses) stated (in H.Rept. 104-885)¹⁹

The formulas are long-standing and were used when Members' allowances were in distinct and separate funds, the intention was to produce an equitable allowance for all Members based on geographical location, and varying population and costs in their districts. This approach is under review to determine its equity in light of the single MRA fund.

In the Committee on House Administration activity report for the 106^th Congress (H.Rept. 106-1056), the minority committee members stated²⁰

Another significant improvement made by the Committee since 1995, consolidation of the Members' office allowances into one Members' Representational Allowance (MRA), continued a trend begun under Democrats during the 1970s. The flexibility afforded by a single MRA has relieved many administrative burdens imposed by the prior scheme of multiple, discrete office accounts. However, in this area much work remains because the MRA formula, which has not been modified since 1986, has not kept pace with changes in the economy and how Members operate their offices. A recent study reconfirmed that House personal staff earn on average substantially less than comparably educated workers in the national economy and elsewhere in the federal government, yielding high staff turnover and low tenure in Members' offices impairing Members' ability to achieve their goals. In addition, high costs of computers and other commodities Members must buy also compete for the available resources. In the First Session of the 107^th Congress, the Committee should re-examine the MRA formula, and make appropriate adjustments effective for the Second Session. If Members are to represent their constituents effectively, they must have adequate resources.

Some years later, the House Appropriations Committee's report to accompany the FY2020 Legislative Branch Appropriations bill (H.Rept. 116-64) stated²¹

Analysis of Members' Representational Allowances: The Committee believes that the formula used to calculate the MRA is due for a review and re-examination. For example, one issue that merits study is whether the MRA adequately supports the cost of district office rent in districts where there is no Federal office space available for rent and districts with above-average market rents. The Committee understands that the CAO is conducting an analysis of the MRA formula and looks forward to the results of that analysis.

Interest in the MRA formula continued, and the House Appropriations Committee's report to accompany the FY2021 Legislative Branch Appropriations bill (H.Rept. 116-447) stated²²

In H.Rept. 116-64, the Committee directed the CAO to produce and submit to the Committee a report on the adequacy of district office rent allocations in the MRA in districts where there is no Federal office space available for rent and districts with above-average market rate rents. The Committee looks forward to receiving this report in a timely manner.

Formula Recalculation in 2023

The 2023 individual MRA formula was revised generally through the adoption of Committee Resolution 118-13.²³ The MRA components continued to be

• a clerk-hire component (revised for 2023 to $1,434,751 for all Members);
• an official expense component (based on one standard component—revised for 2023 to $134,412 for all Members for office expenditures—and two variable components—calculated based on travel²⁴ and district office rent); and
• an official mail component (based on nonbusiness delivery stops in a congressional district).

The formula and individual authorized levels for 2024 remained unchanged since the 2023 revisions.²⁵

Allowable Expenses: Most Recent Changes

The Committee on House Administration has sometimes amended language in the Members' Congressional Handbook governing allowable expenses through the adoption of committee resolutions. Committee resolutions related to the MRA adopted in the 117^th and 118^th Congresses include²⁶

• Committee Resolution 117-14 (relating to Community Funding Projects and the Wounded Warrior Program²⁷ and House Gold Star Family Fellowship Program), adopted by committee poll conducted April 22, 2021, through April 26, 2021;
• Committee Resolution 117-22 (relating to the purchase of certain tokens for constituents, amending regulations related to allowable off-site events, and allowing for the purchase of "challenge coins") adopted by a committee poll conducted June 13, 2022, through June 16, 2022;
• Committee Resolution 117-25 (relating to duty stations for Members of the House and travel expenses while on official business), adopted by a committee poll conducted December 23, 2022, through December 27, 2022;
• Committee Resolution 118-15 (amending Committee Resolution 117-25), adopted by a committee poll conducted on March 31, 2023;
• Committee Resolution 118-22 (a resolution to update and modernize the Members' Congressional Handbook), adopted unanimously during a full committee markup on September 28, 2023; and
• Committee Resolution 118-34 (a resolution to update and modernize the Members' Congressional Handbook), adopted unanimously during a full committee markup on April 30, 2024.

Employees for Congressional Member Organizations

Another structural change in recent years relates to the use of shared staff of Congressional Member Organizations (CMOs). For additional information, see Committee Resolution 117-8; the Eligible Congressional Member Organizations Handbook;²⁸ CRS Report R40683, Congressional Member Organizations (CMOs) and Informal Member Groups: Their Purpose and Activities, History, and Formation, by Sarah J. Eckman; and separate orders included in the resolutions for adopting the Rules of the House of Representatives for the 118^th (H.Res. 5) and 119^th (H.Res. 5) Congresses.²⁹

Appropriations and Allocations: Timing Differences with the Overall Fiscal Year Appropriation and Individual Member Calendar Year Authorization

Funding is provided on a fiscal year (beginning October 1) basis and a single total amount for all Members is provided under the appropriations heading, "Members' Representational Allowances," within the House account "Salaries and Expenses" contained in the annual legislative branch appropriations bills.

Allowance or authorization levels for individual Members of the House are authorized in statute and are regulated and adjusted by the Committee on House Administration pursuant to 2 U.S.C. 4313 et seq. and House Rule X(1)(j). The individual MRAs for the 441 Members, Delegates, and the Resident Commissioner are authorized for periods that correspond closely to the sessions of Congress—from January 3 of each year through January 2 of the following year.³⁰

In addition to the complexity involved in different time frames and split responsibilities—with the appropriation on a fiscal year determined by the Committee on Appropriations, and the authorization roughly following the calendar year as allocated by the Committee on House Administration—the House has indicated that the total authorized level for all MRAs may be more than the total appropriation due to projections on spend-out rates.

For example, the House Appropriations Committee report accompanying the FY2020 legislative branch appropriations bill stated that, of the amount recommended, "Almost half of the increase is needed just to bring the appropriation more in line with currently authorized spending."³¹

A discussion of the use of prior spending patterns in the determination of MRA appropriations levels was included in numerous House reports, particularly in the first few years of the MRA.³² For example, the FY1997 report accompanying the legislative branch appropriations bill stated

Many Members do not expend their full allowance. That is why the Committee bill does not fully fund this account. The frugality of those Members is already projected in the bill presented by the Committee. Since these prospective savings are already taken in the bill, they reduce the need for appropriated funds and, therefore, contribute directly to the reduction in federal spending and consequently lower the projected deficit. If the Committee bill were to fully fund the Members' Representational Allowance, the amount appropriated would have to be increased by $27 million. Thus, the account is underfunded by almost 7%.³³

This difference was also discussed during a hearing on the FY2009 legislative branch appropriations requests.³⁴

Pursuant to law, late-arriving bills may be paid for up to two years following the end of the MRA year.³⁵ The permissibility of payment for late-arriving bills does not provide flexibility in the timing of the obligation, a point emphasized in the Members' Congressional Handbook, which states: "all expenses incurred will be charged to the allowance available on the date the services were provided or the expenses were incurred" and the "MRA is not transferable between years."³⁶

Fiscal Year Appropriations: Funding History

The MRA is funded in the House "Salaries and Expenses" account in the annual legislative branch appropriations bills. One single line-item provides funding for all Members' MRAs.

The FY2010 MRA funding level of $660.0 million was not exceeded until FY2022.

The FY2010 level was subsequently reduced to $613.1 million in FY2011 (-7.1%), and then to $573.9 million in FY2012 (-6.4%). The FY2012 funding level was continued in the FY2013 continuing resolution (P.L. 113-6), not including a 5.2% sequestration (i.e., an across-the-board rescission of nonexempt spending). The FY2014 level of $554.3 million was continued in the FY2015 act (P.L. 113-235) and the FY2016 act (P.L. 114-113).

At an April 20, 2016, markup of the FY2017 bill, the House Appropriations Committee Legislative Branch Subcommittee recommended a continuation of this level. At the May 17, 2016, full committee markup, an amendment offered by Representative Farr to increase this level by $8.3 million, to $562.6 million (+1.5%), was agreed to. This level was included in the House-passed FY2017 bill (H.R. 5325). H.R. 5325 was not enacted, however, this increase was provided in the Consolidated Appropriations Act, 2017 (P.L. 115-31), which was enacted on May 5, 2017.

The FY2017 level was continued for FY2018. The FY2019 level of $573.6 million represented an increase of $10.998 million (+2.0%). The FY2020 law (P.L. 116-94) provided $615.0 million, an increase of $41.4 million (+7.2%). The FY2021 law (P.L. 116-260) provided $640.0 million (+4.1%). The FY2022 law (P.L. 117-103) provided $774.4 million (+21.0%).

The FY2023 act (P.L. 117-328) provided $810.0 million (+4.6%), a level continued in the FY2024 Further Consolidated Appropriations Act (P.L. 118-47).

For FY2025, the House requested, and the House-reported bill (H.R. 8772, which failed on passage) would have provided, $843.6 million (+4.1%). The report accompanying H.R. 8772 (H.Rept. 118-555) stated that the funding level would reflect "an increase of MRA spending closer to the authorized amounts compared to recent historical trends." The House did not consider further separate legislative branch funding prior to the start of FY2025 on October 1, 2024, and the legislative branch has since been funded by continuing appropriations resolutions (P.L. 118-83, through December 20, 2024; and P.L. 118-158, through March 14, 2025).

Table 1 provides the appropriation for the overall MRA account for all Members from FY1996 through FY2024. Figure 1 shows the same information in current and constant (2024) dollars.

Figure 1. MRA Funding: Current and Constant Dollars (FY1996-FY2024)

Source: CRS calculations based upon annual legislative branch appropriations acts, including supplemental appropriations and rescissions. Constant (2024) dollars based on Consumer Price Index for All Urban Consumers (CPI-U, U.S. Department of Labor, Bureau of Labor Statistics).

Figure 2 shows that the MRA is the largest category of appropriations within the House of Representatives, regularly comprising approximately 43%-53% of House appropriations. The MRA appropriation does not include certain benefits—including any government contributions toward health and life insurance and retirement, which are paid through another House account.

Figure 2. MRA Funding Compared to Overall House Appropriations (current dollars)

Source: CRS calculations based upon annual legislative branch appropriations acts, including supplemental appropriations and rescissions.

Establishment of a Separate Account for Paid Interns in FY2019

Prior to FY2019, any payments for interns in House Member offices were derived from the MRA. In FY2019, an administrative provision in the legislative branch appropriations act (P.L. 115-244) established a separate allowance for interns in Member offices.

In the initial year, $8.8 million was provided for paid interns. In FY2020, $11.0 million was provided; in FY2021, $11.0 million; in FY2022, $15.4 million; and in FY2023, FY2024, the FY2025 request, and the FY2025 House-reported bill (H.R. 8772, which failed on passage), $20.6 million.

Individual MRAs for Members: Formula and Authorized Levels Since 1996

The MRA for each Member is set by the Committee on House Administration based on three components: personnel, official office expenses, and official (franked) mail. The personnel allowance component is the same for each Member. The office expenses and mail allowances components vary from Member to Member. The office expense component includes a base amount; a mileage allowance, which is calculated based on the distance between a Member's district and Washington, DC; and an office space allowance, which is based on the cost of office space in a Member's district. The official mail component is calculated based on the number of nonbusiness addresses in a Member's district. The three components result in a single MRA authorization for each Representative that can be used to pay for official expenses.

Table 2 demonstrates the variation in authorization levels that resulted from this formula since 1996. Figure 3 presents this information graphically.

The average 2022 individual authorization represented the first authorization to exceed the 2010 level in current (non-inflation adjusted) dollars.

Additional information on actions taken to adjust the annual individual allowances follows.

Figure 3. MRA Allowances by Member: Maximum, Minimum, and Mean (current dollars, 1996-2024)

Source: CRS calculations based on the Statements of Disbursements including expenses for 1996-2024 (in current dollars). The Member allowances are available from January 3 through January 2 of the following year. Notes: The calculations exclude nonvoting Members, including Delegates and the Resident Commissioner. Members elected by special election and sworn in after the start of the session also excluded since their allowance level may be prorated. Calculations in any year may vary by quarter due to turnover.

112^th Congress: Resolution Reducing Individual Authorizations

In the 112^th Congress (2011-2012), the House agreed to H.Res. 22, which reduced the amount authorized for salaries and expenses of Member, committee, and leadership offices in 2011 and 2012. This resolution, agreed to on January 6, 2011, stated that the MRA allowances for these years may not exceed 95% of the amount established for 2010. Individual MRAs, which reflect authorized levels from January 3 of each year through January 2 of the following year, subsequently were reduced, resulting in a total reduction of 11.08% from 2010 to 2012.³⁷

113^th Congress: Multiple Influences on Individual Authorized Levels

Individual authorization levels for 2013 (January 3, 2013-January 2, 2014), which were affected by both redistricting³⁸ and sequestration,³⁹ were reduced by a total of 8.2% according to the Statement of Disbursements.⁴⁰ For legislative year 2014 (January 3, 2014-January 2, 2015), each Member's MRA increased by 1.0%.⁴¹

Subsequent Years

The FY2015 MRA appropriations level remained unchanged from FY2014, and Members' individual allowances were continued from legislative year 2014 to 2015.⁴²

The FY2016 MRA appropriations level remained unchanged from FY2014 and FY2015, although Members' individual allowances for legislative year 2016 were increased by 1.0%.⁴³

The FY2017 MRA appropriations level increased by 1.5% from FY2016. According to the Statement of Disbursements, each Member's authorization for 2017 was increased "by approximately 3.9% of the average MRA."⁴⁴ This resulted in an average increase of approximately $47,000.

A shooting on June 14, 2017, at a practice for the Congressional Baseball Game, which wounded one Member of Congress, two U.S. Capitol Police (USCP) officers, and two members of the public in Alexandria, VA, had an impact on consideration of MRA funding for FY2018.

The report accompanying the legislative branch appropriations bill (H.R. 3162), in addition to addressing funding for the Capitol Police and the House Sergeant at Arms, indicated that the Appropriations "Committee has provided resources necessary to support the Committee on House Administration's plan to increase Member's Representational Allowance (MRA) by $25,000 per account this year for the purpose of providing Member security when away from the Capitol complex."⁴⁵

The House approved the MRA authorization increases when it agreed to H.Res. 411, by unanimous consent, on June 27, 2017.

As stated above, during consideration in the House of the FY2018 legislative branch appropriations bill (H.R. 3219)⁴⁶ on July 26, 2017, two amendments related to the MRA were offered: H.Amdt. 214 was agreed to by voice vote, and H.Amdt. 213 failed by voice vote.

Subsequently, on July 28, 2017, House Sergeant at Arms Paul D. Irving issued a "Dear Colleague" letter announcing that his office "will assume the cost of and oversee future District Office security upgrades, maintenance, and monthly monitoring fees."⁴⁷ These upgrades were previously supported through the MRA.

On August 15, 2017, the Committee on House Administration issued a "Dear Colleague" letter announcing updates to the Members' Congressional Handbook incorporating these and other changes.⁴⁸ The MRA remains available for security measures necessitated by official duties as discussed in the letter and the Handbook.

The FY2018 act continued the FY2017 level of $562.6 million. According to the Statement of Disbursements, the "Members' Representational Allowance for 2018 utilizes each Member's 2017 amount and increases that amount by $25,000."⁴⁹

The FY2019 act provided $573.6 million (+2.0%). According to the Statement of Disbursements, Members' individual allowances for legislative year 2019 were increased by 1.0%.⁵⁰

The FY2020 law (P.L. 116-94) provided $615.0 million, an increase of $41.4 million (+7.2%). According to the Statement of Disbursements, Members' individual allowances for legislative year 2020 were increased by $62,250.⁵¹

The FY2021 law (P.L. 116-260) provided $640.0 million (+4.1%). According to the Statement of Disbursements, Members' individual allowances for legislative year 2021 were increased by $65,000.⁵²

The FY2022 law (P.L. 117-103) provided $774.4 million (+21.0%). According to the Statement of Disbursements, Members' individual allowances for legislative year 2022 also increased by 21.0%.⁵³

The FY2023 law (P.L. 117-328) provides $810.0 million (+4.6%). The 2023 individual MRA formula was revised generally through the adoption of Committee Resolution 118-13. According to the Statement of Disbursements, the formula continued to account for a clerk-hire component, an official expense component (office, travel, and district office rent components), and an official mail component.⁵⁴

The FY2024 law (P.L. 118-47) continued the FY2023 funding level. The 2024 individual MRA remained the same as in 2023.⁵⁵

Guidelines, Operations, and Sources of Regulations

Expenses related to official and representational duties are reimbursable under the MRA in accordance with the regulations contained in the Members' Congressional Handbook.

The Handbook, for example, states that a

Member is personally responsible for the payment of any official and representational expenses incurred that exceed the provided MRA or that are incurred but are not reimbursable under these regulations.⁵⁶

Certain expenses, including personal expenses, alcoholic beverages, and gifts and donations other than those specified, are also not reimbursable. The MRA is not transferable between years, and unspent funds from one year cannot be obligated in any subsequent year.

Other limitations on the use of official funds are also contained in House Rule XXIV.

"Dear Colleague" Letters Related to the MRA

"Dear Colleague" letters—which are distributed among Members, committees, and officers—frequently mention the MRA. These "Dear Colleague" letters have announced changes in the dissemination of information or the processing of vouchers, elaborated on procedures, reminded Members and staff of guidelines on the use of funds, and asked for support for MRA legislation.

The Committee on House Administration, for example, has distributed regular annual "Dear Colleagues" announcing or explaining regulations, such as those pertaining to end-of-year expenses, district office space, and travel.⁵⁷ Other letters have been issued regarding allowable franking and MRA expenses for the annual Congressional Art Competition or travel for a Member's funeral service, as well as reminders of prohibited expenses.⁵⁸ The letters have explained the implication of new regulations, rulings, or decisions on MRA spending.⁵⁹ They also have summarized changes to the Statement of Disbursements and announced the publication of new quarterly information.⁶⁰

Categories of Spending

House spending is categorized by the standard budget object classes used for the federal government.⁶¹ These may include

• personnel compensation;
• travel;
• rent, communications, and utilities;
• printing and reproduction;
• other services;
• supplies and materials;⁶²
• transportation of things; and
• equipment.

The disbursement volumes also contain a category for franked mail.

Certain costs are not included in the MRA and will not be reflected in these totals. The costs include the salaries of Members⁶³ and certain benefits—including any government contributions toward health and life insurance and retirement—for both Members and staff. Additionally, the range of items that may be covered by an office has changed over time.⁶⁴ The MRA also does not reflect spending by House officers and legislative branch agencies in support of Member offices.

Statements of Disbursements: Online Publication and CSV Availability

The Statements of Disbursements (SOD) are published as House documents and were historically available in bound volumes. Beginning with the disbursements for the quarter ending September 30, 2009, the Statements have been posted on the House of Representatives website, House.gov.⁶⁵ Beginning with disbursements covering January-March 2016, this website provides SOD information in a sortable CSV (comma-separated values) format.

The MRA in Historical Practice: An Analysis of Spending in Selected Years

This section examines the use of the MRA in practice in recent years.

Methodology

Disbursement information for each authorization year may appear in Statements for 12 quarters, since, as discussed above, late-arriving bills may be paid for up to two years following the end of the MRA year (although unspent funds from one year cannot be obligated in any subsequent year). For example, while Members could only obligate 2021 MRA expenditures from January 3, 2021, until January 2, 2022, late-arriving receipts can be paid through the quarter ending December 31, 2023. While some bills, particularly from outside vendors, may be settled up to eight quarters after the end of the MRA year, the vast majority of billing occurs during the session or in the quarter immediately following the close of the MRA year. Billing for some categories—like personnel compensation—is almost entirely within the disbursements for the calendar year of study.⁶⁶ By examining volumes from subsequent quarters, in addition to those from the authorization year, it is possible to provide a more complete picture of spending patterns.

Analysis

Numerous characteristics of individual congressional districts or Member preferences can influence spending priorities, which is reflected in the flexibility provided to Members in establishing and running their offices.⁶⁷ Despite some variations, the data, however, show a relative consistency in the overall allocation of MRA resources by category of spending both across Members and over time.⁶⁸

Table 3 provides a distributional analysis of office-level data for certain categories of spending, while Figure 4 demonstrates aggregate House spending in these years.

The office-level and aggregate data indicate that personnel compensation is by far the largest category of expense for Member offices, and it increased as a percentage of spending over this time period. Spending on travel and "Rent, Communications, and Utilities" remained relatively stable, while spending on franked mail decreased for the average and median Members and for the House overall.

Table 4 shows spending as a proportion of the total individual authorization.

Figure 4. Expenditures by Category, as a Percentage of Aggregate MRA Spending

Source: CRS calculations based on the Statements of Disbursements. Notes: This figure only represents spending supported by the MRA. For example, this figure does not include government contributions for employee benefits (which are paid through another House account), Member salaries, the cost of DC office space, and various services provided by House support offices or legislative branch agencies. It also does not include categories of spending that occasionally appear in the Statements of Disbursements, but generally account for less than 0.00% of spending each year (e.g., "transportation of things"). Data exclude nonvoting Members, including the Delegates and Resident Commissioner. Members who were not in Congress for the entirety of the MRA year were also excluded.

Appendix. Examples of Legislation Introduced Affecting the MRA by Type