Spending Deal to Avert Shutdown Carries Key Priorities for Both Parties

WASHINGTON — Lawmakers on Monday unveiled a dozen bills that would allocate $1.4 trillion in federal spending for the remainder of the fiscal year in order to prevent the government from shutting down at midnight on Friday.

The legislation, divided into two packages, provides funding for all federal agencies and departments and for extending a number of community and health programs.

The measures drew bipartisan support after months of gridlock, and gave members of each party something to brag about. Republicans touted increases for defense, while Democrats pointed to more money for a number of health and education programs, including Head Start, Title I schools and the child care and development block grant program.

But with time running short before they depart on Friday for the holidays, the lawmakers also agreed to attach a number of other unrelated items, including the repeal of three health care-related tax provisions, legislation to secure pensions and health care for coal miners, and language to raise the legal age to purchase tobacco products to 21.

“When you’re dealing with 12 bills that affect every community around the country, you try and do the best you can and make sure you’re making life better for the most people you can,” Representative Nita M. Lowey, Democrat of New York and the chairwoman of the House Appropriations Committee, told reporters last week, after lawmakers announced a tentative agreement.

Senator Richard C. Shelby, Republican of Alabama and the chairman of the Senate Appropriations Committee, noted of all the unrelated provisions tacked on to the must-pass spending bills, “sometimes people are looking for a train to ride on.”

The House is expected to take up the legislation on Tuesday, with the Senate voting shortly afterward. The White House has not formally said whether President Trump will sign the legislation, but administration officials worked with lawmakers and staff to negotiate final details in the two packages.

Here’s a look at some highlights from the 2,313 pages of spending legislation.

Lawmakers agreed to maintain existing levels of funding for Mr. Trump’s cherished border wall, allocating $1.375 billion for border barrier construction. They put no limitations on the president’s ability to transfer funds from other Pentagon accounts, but Democrats did succeed in blocking replacement funds for the $3.6 billion Mr. Trump has ordered to be diverted from military construction projects to construction of the wall.

There was also agreement to maintain the same number of migrants who can be held in Immigration and Customs Enforcement facilities, levels set by the number of detention beds and established in the previous budget. But the administration continues to have the ability to increase the number of people in custody.

The funding bill for the Department of Homeland Security also allocated $10 million for an ombudsman responsible of oversight of immigration detention. The official, who will be independent of Homeland Security agencies, will be tasked with reviewing complaints filed against Customs and Border Protection and ICE agents, as well as making unannounced inspections of detention facilities.

Taxes that were intended to help pay for President Barack Obama’s signature health care law — the so-called Cadillac tax, the health insurance tax and the medical device tax — will be permanently eliminated.

The Cadillac tax, a proposal to tax high-cost, generous health insurance plans that was supposed to be one of the main ways the law paid for itself, has never gone into effect. The House voted overwhelmingly to repeal the tax earlier this year.

The health insurance tax, which applied to health insurers, and the medical device tax, which applied to products like X-ray machines, pacemakers, artificial hearts and artificial hip and knee joints, have been sporadically implemented.

The money will go to the Centers for Disease Control and Prevention and the National Institutes of Health. The two agencies will receive a total of $25 million for research.

But Republicans succeeded in keeping language that stipulates the federal funding cannot be used to push for gun control measures.

The Tobacco-Free Youth Act, a landmark public health proposal, would raise the minimum age to buy tobacco and e-cigarette products in the United States from 18 to 21, a move that has earned bipartisan support as youth vaping has continued to increase.

Nineteen states and the District of Columbia have already adopted “Tobacco 21” proposals, as have more than 530 localities, according to the Campaign for Tobacco-Free Kids, which tracks such measures.

The Senate proposal was introduced earlier this year by Senator Mitch McConnell, Republican of Kentucky and the majority leader, and Senator Tim Kaine, Democrat of Virginia, and would also impose stricter age verification requirements for brick-and-mortar and online sales and require states to conduct inspections to ensure compliance.

Lawmakers extended a number of health-related programs to May 22. The extension is meant to be an incentive for Congress and the White House to resolve differences next year over legislation that curtails surprise billing for health care and drug prices.

Lawmakers also negotiated temporary increases in federal matching rates for Medicaid for American territories, in addition to restoring a pension fund for retired miners and health benefits that was at risk as a result of coal companies going bankrupt.

The $425 million was a compromise between the Senate and House.

Congress also agreed to allocate $7.6 billion for the Census Bureau to conduct the 2020 census.

Abby Goodnough, Sheila Kaplan and Zolan Kanno-Youngs contributed reporting.

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