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Continuing Resolutions: Overview of Components and Recent Practices

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. Continuing Resolutions: Overview of Components and Recent Practices Jessica Tollestrup Analyst on Congress and the Legislative Process August 6, 2012July 16, 2015 Congressional Research Service 7-5700 www.crs.gov R42647 CRS Report for Congress Prepared for Members and Committees of Congressc11173008 Continuing Resolutions: Overview of Components and Recent Practices . Summary Congress uses an annual appropriations process to fund the routine activities of most federal agencies. This process anticipates the completion of 12 regular appropriations bills to fund these activities before the beginning of the fiscal year. Over the past half century, the timing of congressional action on regular appropriations bills has varied considerably, but enactment after the start of the fiscal year has been a recurring issue. Until regular appropriations for a fiscal year are enacted, one or more continuing appropriations acts (commonly known as a continuing resolution or CRresolutions or CRs) can be used to provide funding for a specified period of time. Under recent congressional practice, continuing resolutionsCRs typically include as many as six main components. First, CRs provide funding for certain activities, which are typically specified with reference to the prior fiscal year’s appropriations acts. This is referred to in this report as the CRs CR’s coverage. Second, CRs provide budget authority for a specified duration of time. This duration may be as short as a single day, or as long as the remainder of the fiscal year. Third, CRs typically provide provide funds based on an overall funding rate. Fourth, the use of budget authority provided in the CR is typically prohibited for new activities not funded in the previous fiscal year. Fifth, the duration duration and amount of funds in the CR, and purposes for which they may be used for specified activities, may be adjusted through anomalies. Sixth, legislative provisions, which create, amend, or or extend other laws, have been included in some instances. Between FY1977 and FY2012, FY2015 (excluding the four fiscal years thatin which all appropriations were enacted on time), over half of the regular appropriations bills for a fiscal year were enacted on time in only one instance (FY1978). In all other fiscal years, fewer than six regular appropriations acts were enacted on or before October 1. In addition, in 1113 out of the 3639 years during this period, none of these regular appropriations bills were enacted prior to the start of the fiscal year. FiveEight of these fiscal years have occurred in the interval since FY2001. For further information, see Table 1. In the interval since FY1997, the most recent fiscal year that all regular appropriations bills were completed on time, continuing resolutions—CRs have been enacted on average about six times per fiscal year. During this period, CRs provided funding for an average of fouralmost five months each fiscal year. For further information, see Table 2 and Figure 1. Congress has employed full-year continuing resolutionsCRs on a number of occasions. For each of the 11 fiscal years covering FY1978-FY1988, Congress enacted a full-year CR covering at least one regular appropriations act. Three years later, Congress enacted another full-year CR, for FY1992. Most recently, full-year CRs were enacted for FY2007, FY2011, and FY2013 and FY2011. The budget authority in these full-year CRs was also provided in different forms. The nine10 full-year CRs for FY1980 FY1980 through FY1984, FY1992, FY2007, and FY2011,FY2011, and FY2013 included formulaic provisions that provided funding for at least one of the covered appropriations acts. The full-year CRs for FY1985 through FY1988, by contrast, did not use formulaic provisions but instead specified amounts for each account. For further information, see Table 3. For a list of all continuing resolutions enacted since FY1977, see Table 4 at the end of this report. This report will be updated after the annual appropriations process for a fiscal year has concluded. c11173008 Congressional Research Service Continuing Resolutions: Overview of Components and Recent Practices . Contents Introduction...................................................................................................................................... 1 Main Components of Continuing Resolutions................................................................................. 32 Coverage .................................................................................................................................... 3 Duration ..................................................................................................................................... 54 Funding Rate ............................................................................................................................. 6 Purpose for Funds and Restrictions on New Activities ............................................................. 7 Exceptions to Duration, Amount, and Purposes: Anomalies ..................................................... 8 Duration............................................................................................................................... 8 Amount ................................................................................................................................ 8 Purpose ................................................................................................................................ 9 Legislative Provisions ............................................................................................................... 9 10 The Enactment of Regular Appropriations Bills and Use of Continuing Resolutions, FY1977-FY2012....................................................................CRs, FY1977-FY2015 .................... 11 Duration and Frequency of Continuing Resolutions, FY1998-FY2015 ..................................................... 11 Duration and Frequency of Continuing Resolutions, FY1998-FY2012 13 Features of Full-Year CRs, FY1977-FY2015 ........................................ 13 Features of Full-Year Continuing Resolutions, FY1977-FY2012 ................................................. 17 Figures Figure 1. Duration of Continuing Resolutions: FY1998-FY2012 ... (CRs): FY1998-FY2015.............................................. 16 Tables Table 1. The Enactment of Regular Appropriations Bills and Use of Continuing Resolutions, FY1977-FY2012........... (CRs), FY1977-FY2015 ......................................................................................... 11 Table 2. Number and Duration of Continuing Resolutions: FY1998-FY2012... (CRs): FY1998-FY2015 ........................... 13 Table 3. 13 Table 3. Appropriations Acts Containing Full-Year Continuing Resolutions, FY1977-FY2012 (CRs), FY1977-FY2015 ......................................................................................................................... 18 Table 4. Number, Page Length, and Duration of Continuing Resolutions (CRs): FY1977FY2015: FY1977FY2012 ....................................................................................................................................... 1920 Contacts Author Contact Information........................................................................................................... 2931 Acknowledgments ......................................................................................................................... 2931 c11173008 Congressional Research Service Continuing Resolutions: Overview of Components and Recent Practices . Introduction Congress uses an annual appropriations process to fund the routine activities of most federal agencies.1 This process anticipates the enactment of 12 regular appropriations bills to fund these activities before the beginning of the fiscal year.2 When this process is delayed beyond the start of the fiscal year, one or more continuing appropriations acts (commonly known as continuing resolutions or CRs)3 can be used to provide funding until action on regular appropriations is completed. Over the past half century, the timing of congressional action on regular appropriations bills has varied considerably, but their enactment after the start of the fiscal year has been a recurring issue. During the 25-year period covering FY1952-FY1976, when the fiscal year began on July 1, at least one regular appropriations bill was enacted after the fiscal year began. At the end of this period, the start of the fiscal year was moved from July 1 to October 1 by the Congressional Budget Act of 1974 (P.L. 93-344; 88 Stat. 297).4 When the act was fully implemented for FY1977, all of the regular appropriations bills for that fiscal year were enacted on time. Since FY1977, however, all of the regular appropriations bills were enacted before the beginning of the fiscal year in only three additional instances (FY1989, FY1995, and FY1997).5 Agencies are generally prohibited from obligating or expending federal funds6 in the absence of appropriations.7 When appropriations for a particular project or activity are not enacted into law, a 1 The congressional budget process distinguishes between discretionary spending, which is controlled through appropriations acts, and direct (or mandatory) spending, which is controlled through permanent law. For further information on the types of spending in the congressional budget process, see CRS Report 98-721, Introduction to the Federal Budget Process, coordinated by Bill Heniff Jr. For further information on the appropriations process, see CRS Report R42388, The Congressional Appropriations Process: An Introduction, by Jessica Tollestrup. 2 Several key terms in this report are italicized for emphasis. Under current practice, each House Appropriations subcommittee typically drafts one regular appropriations bill for the activities under its jurisdiction, for a total of 12 bills each fiscal year. Consolidated appropriations measures, sometimes referred to as “omnibus bills,” where two or more of the regular bills are combined into one legislative vehicle, have also been used for consideration and enactment. For further information, see CRS Report RL32473, Omnibus Appropriations Acts: Overview of Recent Practices, by Jessica Tollestrup. 3 Continuing appropriations acts are commonly referred to as “continuing resolutions” because they usually provide continuing appropriations in the form of a joint resolution rather than a bill. Continuing appropriations, however, are are also occasionally provided through a bill. 4 Section §501 of P.L. 93-344 (88 Stat. 321); July 12, 1974. This section later waswas later replaced by the Federal Credit Reform Act of 1990, but the start of the fiscal year remains October 1 (see 31 U.S.C. 1102). 5 FY1977 marked the first full implementation of the congressional budget process established by the Congressional Budget Act of 1974, which moved the beginning of the fiscal year to October 1. 6 Appropriations bills provide agencies budget authority, which is authority provided by federal law to enter into contracts or other financial obligations that will result in immediate or future expenditures (or outlays) involving federal government funds. For explanations of these terms, see U.S. Government Accountability Office (hereafter GAO), A Glossary of Terms Used in the Federal Budget Process, GAO-05-734SP, September 2005, pp. 20-21, http://www.gao.gov/. 7 These prohibitions are contained in the Antideficiency Act (31 U.S.C. §1341-1342, §1511-1519). Exceptions are made under the act, including for activities involving “the safety of human life or the protection of property” (31 U.S.C. 1342). The Antideficiency Act is discussed in CRS Report RL30795, General Management Laws: A Compendium, by Clinton T. Brass et al. In addition, the GAO provides information about the act online at http://www.gao.gov/ada/ antideficiency.htm. c11173008 Congressional Research Service 1 Continuing Resolutions: Overview of Components and Recent Practices . “funding gap” occurs until such appropriations are provided. When a funding gap occurs, federal agencies must begin a “shutdown”8 of the affected projects and activities.9 To prevent the occurrence of funding gaps after the start of the fiscal year until the annual appropriations process is completed, a continuing resolutionCR can be used to provide temporary funding. Such funding is provided for a specified period of time, which may be extended through the enactment of subsequent continuing resolutionsCRs. During the 25 fiscal years covering FY1952FY1976FY1952-FY1976, one or more continuing resolutionsCRs were enacted for all but one fiscal year (FY1953) during this period.10 Since FY1977, all of the regular appropriations acts were completed before the start of the fiscal year in only four instances—FY1977, FY1989, FY1995, and FY1997.11 Consequently, one or more CRs were needed to prevent a funding gap each of the other fiscal years during this period. In total, 161172 CRs were enacted into law during the period covering FY1977-FY2012FY2015, ranging from zero to 21 in any single fiscal year. On average, about sixfour CRs were enacted each fiscal year during this interval. The purpose of this report is to provide an overview of the components of continuing resolutions CRs and a longitudinal analysis of recent congressional practices. Consequently, the data and analysis in this report is are inclusive of all appropriations acts entitled or otherwise designated as providing continuing continuing appropriations.12 The first section of this report explains six of the possible main components of continuing resolutions— CRs: coverage, duration, funding rate, restrictions on new activities, anomalies, and legislative provisions. The second section discusses the enactment of regular appropriations prior to the start of the fiscal year and the number of regular appropriations bills enacted through a CR since FY1977. The third section analyzes variations in the number and duration of CRs enacted each fiscal year since FY1997, the most recent fiscal year that all regular appropriations were enacted on time. Finally, the fourth section of this report discusses the features of the 14 continuing resolutions15 CRs that provided funding through the remainder of the fiscal year since FY1977. A list of all CRs enacted between FY1977 and FY2012FY2015 is provided at the end of this report in Table 4. of this report in Table 4. Main Components of Continuing Resolutions Under recent congressional practice, CRs typically include as many as six main components. First, CRs provide funding for certain activities, which are typically specified with reference to the prior or current fiscal year’s appropriations acts. This is referred to in this report as the CR’s 8 For further information on shutdowns, see CRS Report RL34680, Shutdown of the Federal Government: Causes, Processes, and Effects, coordinated by Clinton T. Brass. 9 Funding gaps and shutdowns should be distinguished, however, because a full shutdown may not occur in some instances, such as when a funding gap is of a short duration over a weekend. For a further discussion of this issue, as well as a list of all funding gaps that have occurred since FY1977, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by Jessica Tollestrup. 10 Although regular appropriations for FY1953 were enacted into law after the start of the fiscal year, no continuing appropriations were provided. Section §1414 of P.L. 82-547 (July 15, 1952), a supplemental appropriations measure for FY1953, resolved the legalities arising from the tardy enactment of appropriations for that year. 11 Although regular appropriations for FY1977 were enacted into law before the start of the fiscal year, continuing resolutionsCRs were also enacted to fund certain unauthorized programs whose funding had not been included in the regular appropriations acts. Section §1414 of P.L. 82-547 (66 Stat. 661) made regular appropriations enacted later than the beginning of the fiscal year available retroactively as of July 1, 1952 (the first day of FY1953) and ratified any obligations incurred before their enactment. 12 In some instances, such acts might alternatively be characterized by some observers as “omnibus appropriations acts.” For a further discussion of this issue, see the section titled “Funding Rate” and CRS Report RL32473, Omnibus Appropriations Acts: Overview of Recent Practices, by Jessica Tollestrup. c11173008 Congressional Research Service 2 Continuing Resolutions: Overview of Components and Recent Practices Main Components of Continuing Resolutions Under recent congressional practice, continuing resolutions typically include as many as six main components. First, CRs provide funding for certain activities, which are typically specified with reference to the prior or current fiscal year’s appropriations acts. This is referred to in this report as the CR’s . coverage. Second, CRs provide budget authority for a specified duration of time.13 This duration may be as short as a single day, or as long as the remainder of the fiscal year. Third, CRs typically provide funds based on an overall funding rate. Fourth, the use of budget authority provided in the CR is typically prohibited for new activities not funded in the previous fiscal year. Fifth, the duration and amount of funds in the CR, and purposes for which they may be used for specified specified activities, may be adjusted through anomalies. Sixth, legislative provisions, which —which create, amend, or extend other laws, have been included in some instances. Although this section discusses the above components as they have been enacted in continuing resolutionsCRs under recent practice, it does not discuss their potential effects on budget execution or agency agency operations. For analysis of these issues, see CRS Report RL34700, Interim Continuing Resolutions (CRs): Potential Impacts on Agency Operations, by Clinton T. Brass. Coverage A continuing resolutionCR provides funds for certain activities, which are typically specified with reference to other pieces of appropriations legislation or the appropriations acts for a previous fiscal year. This is . This is referred to in this report as the CR’s “coverage.” Most often, the coverage of a CR is defined with reference to the activities funded in prior fiscal year’syears’ appropriations acts for which the current fiscal year’s regular appropriations have yet to be enacted. For example, in Section 101 of P.L. 111-68, (the first CR for FY2010), the coverage included activities funded in selected regular and supplemental appropriations acts for FY2008 and FY2009: Sec. 101. Such amounts as may be necessary… under the authority and conditions provided in such Acts, for continuing projects or activities (including the costs of direct loans and loan guarantees) that are not otherwise specifically provided for in this joint resolution, that were conducted in fiscal year 2009, and for which appropriations, funds, or other authority were made available in the following appropriations Acts: (1) Chapter 2 of title IX of the Supplemental Appropriations Act, 2008 (P.L. 110-252). (2) Section 155 of division A of the Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L. 110-329), except that subsections (c), (d), and (e) of such section shall not apply to funds made available under this joint resolution. (3) Divisions C through E of the Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L. 110-329). (4) Divisions A through I of the Omnibus Appropriations Act, 2009 (P.L. 111-8), as amended by section 2 of P.L. 111-46. (5) Titles III and VI (under the heading `Coast Guard’) of the Supplemental Appropriations Act, 2009 (P.L. 111-32). [emphasis added] 13 13 Appropriations bills provide agencies with budget authority, which is defined as authority provided by federal law to enter into contracts or other financial obligations that will result in immediate or future expenditures (or outlays) involving federal government funds. For explanations of these terms, see GAO, A Glossary of Terms Used in the Federal Budget Process, GAO-05-734SP, September 2005, pp. 20-21, http://www.gao.gov/Glossary, pp. 20-21. For the purposes of this report, the terms “budget authority” and “funding” are used interchangeably. c11173008 Congressional Research Service 3 Continuing Resolutions: Overview of Components and Recent Practices (4) Divisions A through I of the Omnibus Appropriations Act, 2009 (P.L. 111-8), as amended by section 2 of P.L. 111-46. (5) Titles III and VI (under the heading `Coast Guard’) of the Supplemental Appropriations Act, 2009 (P.L. 111-32). [emphasis added]. Less frequently, CRs specify coverage with reference to regular appropriations bills for the current fiscal year that have yet to be enacted.14 In these instances, it is possible that an activity covered in the corresponding previous fiscal year’s appropriations bill might not be covered in the CR. Alternatively, a CR might stipulate that activities funded in the previous fiscal year are only covered only if they are included in a regular appropriations bill for the current fiscal year. For example, Section 101 of P.L. 105-240, the first CR for FY1999, provided that funding would only continue only under such circumstances. SEC. 101. (a) Such amounts as may be necessary under the authority and conditions provided in the applicable appropriations Act for the fiscal year 1998 for continuing projects or activities including the costs of direct loans and loan guarantees (not otherwise specifically provided for in this joint resolution) which were conducted in the fiscal year 1998 and for which appropriations, funds, or other authority would be available in the following appropriations Acts: (1) the Agriculture, Rural Development, Food and Drug Administration, and Related Agencies Appropriations Act, 1999;……. (8) the Departments of Labor, Health and Human Services, and Education, and Related Agencies Appropriations Act, 1999, the House and Senate reported versions of which shall be deemed to have passed the House and Senate respectively as of October 1, 1998, for the purposes of this joint resolution, unless a reported version is passed as of October 1, 1998, in which case the passed version shall be used in place of the reported version for purposes of this joint resolution; (9) the Legislative Branch Appropriations Act, 1999;…. [emphasis added] Continuing resolutionsCRs may be enacted as stand-alone legislative vehicles or as provisions attached to a regular appropriations bill or an omnibus bill.15 In instances in which one or more regular appropriations bills are near completion, Congress may find it expeditious to include a CR in that same legislative vehicle to cover activities in the remaining regular bills that are not yet enacted. In such instances, some activities may be covered by reference while funding for others is provided through the text of the measure. For example, Division D of P.L. 112-55, the third CR for for FY2012, provided continuing appropriations through December 16, 2011, by referencing the FY2011 regular appropriations acts, while the other parts of P.L. 112-55 contained the full text of the FY2012 Agriculture, Commerce-Justice-Science, and Transportation-Housing and Urban Development regular appropriations acts. 14 See, for example, Section 101 of P.L. 105-240. Two or more regular appropriations bills are sometimes packaged into a single or “omnibus” legislative vehicle prior to enactment. For a discussion of this practice, see CRS Report RL32473, Omnibus Appropriations Acts: Overview of Recent Practices, by Jessica Tollestrup. 15 Congressional Research Service 4 Continuing Resolutions: Overview of Components and Recent Practices Duration The duration of a continuing resolutionDuration The duration of a CR refers to the period for which budget authority is provided for covered activities. The period ends either upon the enactment of the applicable regular appropriations act or on an expiration date specified in the CR, whichever occurs first. When a CR expires prior to the completion of all regular appropriations bills for a fiscal year, one or more additional CRs may be enacted to prevent funding gaps and secure additional increments of time to complete the 14 See, for example, §101 of P.L. 105-240. Two or more regular appropriations bills are sometimes packaged into a single or “omnibus” legislative vehicle prior to enactment. For a discussion of this practice, see CRS Report RL32473, Omnibus Appropriations Acts: Overview of Recent Practices, by Jessica Tollestrup. 15 c11173008 Congressional Research Service 4 Continuing Resolutions: Overview of Components and Recent Practices . remaining regular appropriations bills. The duration of any further CRs may be brief, sometimes a single day, to encourage the process to conclude swiftly, or it may be weeks or months to accommodate further negotiations or congressional recesses. In some cases, continuing resolutionsCRs have carried over into the next session of Congress. In most of the fiscal years in which continuing resolutionsCRs have been used, a series of two or more have been enacted into law.16 Such continuing resolutionsCRs may be designated by their order (e.g., “first” CR, “second” CR) or, after the initial continuing resolutionCR has been enacted, designated as a “further” CR. When action on the regular appropriations bills is not complete by the time when the first continuing resolutionCR expires, subsequent CRs will often simply replace the expiration date in the preceding CR with a new expiration date. For example, Section 1 of the second CR for FY2004, P.L. 108-104 (117 Stat. 1200), stated that “Public Law 108-84 is amended by striking the date specified in Section 107(c) and inserting ‘November 7, 2003.’” This action extended the duration of the preceding CR by seven days. Funds provided by a continuing resolutionCR will not necessarily be used by all covered activities through the date the CR expires. In practice, the budget authority provided by a continuing resolutionCR may be superseded by the enactment of subsequent appropriations measures or the occurrence of other specified conditions. In an instance in which a regular appropriations bill was enacted prior to the expiration of a CR, the budget authority provided by the regular bill for covered activities would replace the funding provided by the CR. All other activities in the CR, however, would continue to be funded by the CR unless they were likewise superseded or the CR expired. The duration of funds for certain activities could also be shortened if other conditions that are specified in the CR occur. For example, Section 107 of P.L. 108-84, the first CR for FY2004, provided funds for 31 days or fewer: Sec. 107. Unless otherwise provided for in this joint resolution or in the applicable appropriations Act, appropriations and funds made available and authority granted pursuant to this joint resolution shall be available until (a) enactment into law of an appropriation for any project or activity provided for in this joint resolution, or (b) the enactment into law of the applicable appropriations Act by both Houses without any provision for such project or activity, or (c) October 31, 2003, whichever first occurs. [emphasis added] In this instance, funding for all other activities not subject to these conditions would continue under the CR until it expired, or was otherwise superseded. When a continuing resolutionCR is attached to a regular appropriations bill, the activities covered by regular regular appropriations are funded through the remainder of the fiscal year, whereas the activities covered covered by the CR are funded through a specified date. Congress also maymay also single out specific activities in a CR to receive funding for a specified duration that differs from the vast majority of 16 For further information, see Table 1 and Table 4 in this report. Congressional Research Service 5 Continuing Resolutions: Overview of Components and Recent Practices other other accounts and activities. This type of variation in duration is discussed in the “Exceptions to Duration, Amount, and Purposes: Anomalies” section. As an alternative to the separate enactment of one or more of the regular appropriations bills for a fiscal year, a CR may provide funds for the activities covered in such bills through the remainder of the fiscal year. This type of CR is referred to as a full-year continuing resolutionCR. Full-year CRs may provide funding for all bills that have yet to be enacted or include the full text of one or more regular appropriations bills. For example, Division A of P.L. 112-10 contained the text of the FY2011 16 c11173008 For further information, see Table 1 and Table 4 in this report. Congressional Research Service 5 Continuing Resolutions: Overview of Components and Recent Practices . Defense Appropriations Act, whereas the programs and activities covered by the 11 remaining remaining regular appropriations bills were funded by the full-year CR in Division B. Funding Rate Continuing resolutionsCRs usually fund activities under a formula-type approach that provides budget authority at a restricted level but not a specified amount. This method of providing budget authority is commonly referred to as the “funding rate.” Under a funding rate, the amount of budget authority for an account17 is calculated as the total amount of budget authority annually available based on a reference level (usually a dollar amount or calculation), multiplied by the fraction of the fiscal year for which the funds are made available in the continuing resolution.18 CR.18 This is in contrast to regular and supplemental appropriations acts, which generally provide specific amounts for each account. In previous years, many CRs have provided funding across accounts by reference to the amount of budget authority available in specified appropriations acts from the previous fiscal year. For example, Section 101 of P.L. 110-329, the first CR for FY2010, provided the following funding rate: Such amounts as may be necessary, at a rate for operations as provided in the applicable appropriations Acts for fiscal year 2008 and under the authority and conditions provided in such Acts, for continuing projects or activities (including the costs of direct loans and loan guarantees) that are not otherwise specifically provided for in this joint resolution, that were conducted in fiscal year 2008, and for which appropriations, funds, or other authority were made available in the following appropriations Acts: divisions A, B, C, D, F, G, H, J, and K of the Consolidated Appropriations Act, 2008 (P.L. 110-161). [emphasis added] Other CRs have provided funding by reference to the levels available in the previous fiscal year, with either an increase or decrease from the previous fiscal year’s level. For example, Section 101(a) and (b) of P.L. 112-33, the first CR for FY2012, provided the following funding rate: (a) Such amounts as may be necessary, at a rate for operations as provided in the applicable appropriations Acts for fiscal year 2011 and under the authority and conditions provided in such Acts, for continuing projects or activities (including the costs of direct loans and loan guarantees) that are not otherwise specifically provided for in this Act, that were conducted 17 Regular appropriations bills contain a series of unnumbered paragraphs with headings, generally reflecting a unique budget “account.” Elements within budget accounts are divided by “program, project or activity” based upon the table “Comparative Statement of New Budget Authority” in the back of the report accompanying the appropriations bill. 18 For a discussion of how funding rates are calculated, see GAO, Office of the General Counsel, Principles of Federal Appropriations Law, Volume II, at 8-10 to 8-14 (3d ed. 2004). Congressional Research Service 6 Continuing Resolutions: Overview of Components and Recent Practices in fiscal year 2011, and for which appropriations, funds, or other authority were made available in the following appropriations Acts…. (b) The rate for operations provided by subsection (a) is hereby reduced by 1.503 percent. [emphasis added] Although these examples illustrate the most typical types of funding rates provided in recent years, other types of funding rates have sometimes been used when providing continuing appropriations. For example, P.L. 105-240, the first continuing resolutionCR for FY1999, provided a variable funding rate for covered activities. Specifically, the CR provided funds derived from three possible reference sources—the House-and Senate-passed FY1999 regular appropriations bills, the amount of the President’s budget request, or “current operations” (the total amount of budget authority available for obligation for an activity during the previous fiscal year), whichever was lower. In instances where no funding was provided under the House-and Senatepassed FY1999 appropriations bills, the funding rate would be based on the lower of the President’s budget request or current operations. In addition, while the first CR for a fiscal year may provide a certain funding rate, subsequent CRs sometimes may provide a different rate. Continuing resolutions have sometimes provided budget authority for some or all covered activities by incorporating the actual text of one or more regular appropriations bills for that fiscal year, rather than provide funding according to the rate formula.19 For example, P.L. 112-10, provided funding for the Department of Defense through the incorporation of a regular appropriations bill in Division A, whereas Division B provided formulaic funding for all other activities for the remainder of the fiscal year.20 In this type of instance, the formula in the CR applies only to activities not covered in the text of the incorporated regular appropriations bill or bills. Purpose for Funds and Restrictions on New Activities Continuing resolutions that provide a funding rate for activities typically stipulate that funds may be used for the purposes and in the manner provided in specified appropriations acts for the previous fiscal year. Continuing resolutions also typically provide that the funds provided may only be used for activities funded in the previous fiscal year. In practice, this is often characterized as a prohibition on “new starts.” In addition, conditions and limitations on program activity from the previous year’s appropriations acts are typically retained by language contained within the resolution’s text. An example of such language, from P.L. 112-33 17 Regular appropriations bills contain a series of unnumbered paragraphs with headings, generally reflecting a unique budget “account.” Elements within budget accounts are divided by “program, project or activity” based upon the table “Comparative Statement of New Budget Authority” in the back of the report accompanying the appropriations bill. 18 For a discussion of how funding rates are calculated, see GAO, Office of the General Counsel, Principles of Federal Appropriations Law, vol. II, 3rd ed. (2004), at 8-10 to 8-14. c11173008 Congressional Research Service 6 Continuing Resolutions: Overview of Components and Recent Practices . reference sources: the House- and Senate-passed FY1999 regular appropriations bills, the amount of the President’s budget request, or “current operations” (the total amount of budget authority available for obligation for an activity during the previous fiscal year), whichever was lower. In instances where no funding was provided under the House-and Senate-passed FY1999 appropriations bills, the funding rate would be based on the lower of the President’s budget request or current operations. In addition, while the first CR for a fiscal year may provide a certain funding rate, subsequent CRs sometimes may provide a different rate. CRs have sometimes provided budget authority for some or all covered activities by incorporating the actual text of one or more regular appropriations bills for that fiscal year rather than providing funding according to the rate formula.19 For example, P.L. 112-10 provided funding for the Department of Defense through the incorporation of a regular appropriations bill in Division A, whereas Division B provided formulaic funding for all other activities for the remainder of the fiscal year.20 In this type of instance, the formula in the CR applies only to activities not covered in the text of the incorporated regular appropriations bill or bills. Purpose for Funds and Restrictions on New Activities CRs that provide a funding rate for activities typically stipulate that funds may be used for the purposes and in the manner provided in specified appropriations acts for the previous fiscal year. CRs also typically provide that the funds provided may be used only for activities funded in the previous fiscal year. In practice, this is often characterized as a prohibition on “new starts.” In addition, conditions and limitations on program activity from the previous year’s appropriations acts are typically retained by language contained within the resolution’s text. An example of such language, from P.L. 112-33, is below: Sec. 103. Appropriations made by section 101 shall be available to the extent and in the manner that would be provided by the pertinent appropriations Act. [emphasis added] Sec. 104. Except as otherwise provided in section 102, no appropriation or funds made available or authority granted pursuant to section 101 shall be used to initiate or resume any project or activity for which appropriations, funds, or other authority were not available during fiscal year 2011. [emphasis added] This language prevents the initiation of new activities with the funds provided in the CR. Agencies may use appropriated funds from prior fiscal years that remain available, however, to initiate new activities in some circumstances.21 19 From a functional perspective, CRs 19 From a functional perspective, continuing resolutions that do not include any formulaic provisions but instead provide appropriations only by using the full text of acts (including by cross-reference), are sometimes regarded as omnibus appropriations acts rather than continuing resolutionsCRs, even if they are entitled an act “making continuing appropriations” or “making further continuing appropriations.” 20 The formulaic funding for many of the accounts funded in Division B was modified by anomalies. For a discussion of this practice, see the “Anomalies” section of this report. Congressional Research Service 7 Continuing Resolutions: Overview of Components and Recent Practices project or activity for which appropriations, funds, or other authority were not available during fiscal year 2011. [emphasis added] This language prevents the initiation of new activities with the funds provided in the CR. Agencies may use appropriated funds from prior fiscal years that remain available, however, to initiate new activities in some circumstances.21 Exceptions to Duration, Amount, and Purposes: Anomalies Even though continuing resolutions typically provide funds at a rate, they may also include provisions that enumerate exceptions to the duration, amount, or purposes for which those funds may be used for certain appropriations accounts or activities. Such provisions are commonly referred to as “anomalies.” The purpose of anomalies is to preserve Congress’s constitutional prerogative to provide appropriations in the manner it sees fit, even in instances when only shortterm funding is provided.22 Duration A continuing resolution may contain anomalies that designate a duration of funding for certain activities that is different from the overall duration provided. For example, Section 112 of P.L. 108-84, provided an exception to the expiration date of October 31, 2003, specified in Section 107(c) of the continuing resolution 21 Although appropriations bills most commonly provide budget authority that is available for obligation for only one fiscal year, budget authority for an activity may be provided for more than one year (“multiyear”) or indefinitely (“noyear”). In instances where funds provided in previous years are still available for the purpose of initiating a new project or activity, such funds may generally be used for this purpose, even though funds for the current fiscal year are provided by a CR. GAO, Glossary, p. 22. c11173008 Congressional Research Service 7 Continuing Resolutions: Overview of Components and Recent Practices . Exceptions to Duration, Amount, and Purposes: Anomalies Even though CRs typically provide funds at a rate, they may also include provisions that enumerate exceptions to the duration, amount, or purposes for which those funds may be used for certain appropriations accounts or activities. Such provisions are commonly referred to as “anomalies.” The purpose of anomalies is to preserve Congress’s constitutional prerogative to provide appropriations in the manner it sees fit, even in instances when only short-term funding is provided.22 Duration A CR may contain anomalies that designate a duration of funding for certain activities that is different from the overall duration provided. For example, Section 112 of P.L. 108-84 provided an exception to the expiration date of October 31, 2003, specified in Section 107(c) of the CR: For entitlements and other mandatory payments whose budget authority was provided in appropriations Acts for fiscal year 2003, and for activities under the Food Stamp Act of 1977, activities shall be continued at the rate to maintain program levels under current law, under the authority and conditions provided in the applicable appropriations Act for fiscal year 2003, to be continued through the date specified in section 107(c): Provided, That notwithstanding section 107, funds shall be available and obligations for mandatory payments due on or about November 1 and December 1, 2003, may continue to be made. [emphasis added] Amount Anomalies may also designate a specific amount or rate of budget authority for certain accounts or activities that is different than the funding rate provided for the remainder of activities in the continuing resolutionCR.23 Typically, such funding is specified as an annualized rate based upon a lump sum. For example, Section 120 of P.L. 112-33 provided the following anomaly for a specific account, which was an exception to the generally applicable rate in Section 101: Notwithstanding section 101annualized rate based upon a lump 21 Although appropriations bills most commonly provide budget authority that is available for obligation for only one fiscal year, budget authority for an activity may be provided for more than one year (“multiyear”) or indefinitely (“noyear”). In instances where funds provided in previous years are still available for the purpose of initiating a new project or activity, such funds may generally be used for this purpose, even though funds for the current fiscal year are provided by a CR. (Government Accountability Office, A Glossary of Terms Used in the Federal Budget Process, GAO-05-734SP, September 2005, p. 22, http://www.gao.gov/.) 22 Article 1, Section 9 of the U.S. Constitution grants Congress the “power of the purse” by prohibiting expenditures “but in Consequence of Appropriations made by Law,” http://www.crs.gov/pages/Reports.aspx?PRODCODE= R42098&Source=search - fn2. 23 Regular appropriations bills contain a series of unnumbered paragraphs with headings, generally reflecting a unique budget “account.” Elements within budget accounts are divided by “program, project or activity” (Government Accountability Office, A Glossary of Terms Used in the Federal Budget Process [or A Glossary of Terms Used in the (continued...) Congressional Research Service 8 Continuing Resolutions: Overview of Components and Recent Practices sum. For example, Section 120 of P.L. 112-33, provided the following anomaly for a specific account, which was an exception to the generally applicable rate in section 101: Notwithstanding section 101 , amounts are provided for ‘‘Defense Nuclear Facilities Safety Board—Salaries and Expenses’’ at a rate for operations of $29,130,000. [emphasis added] Funding adjustments can also be provided in anomalies for groups of accounts in the bill. For example, Section 121 of P.L. 112-33, provided a different rate for certain funds in a group of accounts: Notwithstanding any other provision of this Act, except section 106, the District of Columbia may expend local funds under the heading ‘‘District of Columbia Funds’’ for such programs and activities under title IV of H.R. 2434 (112th Congress), as reported by the Committee on Appropriations of the House of Representatives, at the rate set forth under ‘‘District of 22 Article 1, §9, of the U.S. Constitution grants Congress the “power of the purse” by prohibiting expenditures “but in Consequence of Appropriations made by Law.” 23 Regular appropriations bills contain a series of unnumbered paragraphs with headings, generally reflecting a unique budget “account.” Elements within budget accounts are divided by “program, project or activity” (GAO, Glossary, p. 80). When a CR provides funds for activities in the prior year’s regular appropriations acts, anomalies reflect the account structure in such acts. c11173008 Congressional Research Service 8 Continuing Resolutions: Overview of Components and Recent Practices . Columbia Funds—Summary of Expenses’’ as included in the Fiscal Year 2012 Budget Request Act of 2011 (D.C. Act 19–92), as modified as of the date of the enactment of this Act. [emphasis added] Further, anomalies may provide exceptions to amounts specified in other laws. For example, Section 121 of P.L. 110-329 provided that funds may be expended in excess of statutory limits, up to an alternative rate. Notwithstanding the limitations on administrative expenses in subsections (c)(2) and (c)(3)(A) of section 3005 of the Digital Television Transition and Public Safety Act of 2005 (P.L. 109-171; 120 Stat. 21), the Assistant Secretary (as such term is defined in section 3001(b) of such Act) may expend funds made available under sections 3006, 3008, and 3009 of such Act for additional administrative expenses of the digital-to-analog converter box program established by such section 3005 at a rate not to exceed $180,000,000 through the date specified in section 106(3) of this joint resolution. [emphasis added] Purpose Continuing resolutionsCRs may also use anomalies to alter the purposes for which the funds may be expended. Such anomalies may allow funds to be spent for activities that would otherwise be prohibited, or prohibited or prohibit funds for activities that might otherwise be allowed. For example, Section 114 of P.L. 108-309, the first CR for FY2005, prohibited funds from being available to a particular particular department for a certain activity: Notwithstanding any other provision of this joint resolution, except sections 107 and 108, amounts are made available for the Strategic National Stockpile (“SNS”) at a rate for operations not exceeding the lower of the amount which would be made available under H.R. 5006, as passed by the House of Representatives on September 9, 2004, or S. 2810, as reported by the Committee on Appropriations of the Senate on September 15, 2004: Provided, That no funds shall be made available for the SNS to the Department of Homeland Security under this joint resolution…. [emphasis added] (...continued) Federal Budget Process], GAO-05-734SP, September 2005, p. 80, http://www.gao.gov/.) When a CR provides funds for activities in the prior year’s regular appropriations acts, anomalies reflect the account structure in such acts. Congressional Research Service 9 Continuing Resolutions: Overview of Components and Recent Practices Legislative Provisions Substantive legislative provisions, which are provisions that have the effect of creating new law or changing existing law, also have have also been included in some continuing resolutionsCRs. One reason why CRs have been attractive vehicles for such provisions is that they are often widely considered to be must-pass measures to prevent a funding gapgaps. Legislative provisions previously included in CRs have varied considerably in length, from a short paragraph to more than 200 pages. House and Senate rules restrict the inclusion of legislative provisions in appropriations bills, but such restrictions are applicable in different contexts. Although House rules prohibit legislative provisions from being included in general appropriations measures (including amendments or any conference report to such measures), these restrictions do not apply continuing resolutions.24 to CRs.24 Senate rules 24 House Rule XXI, clause 2, prohibits such language in general appropriations measures and applicable amendments. House Rule XXII, clause 5, in effect, generally extends the House Rule XXI, clause 2, prohibition to conference reports. CRs, however, are not considered to be general appropriations bills. W[illia]m Holmes Brown, Charles W. Johnson, and John V. Sullivan, House Practice: A Guide to the Rules, Precedents and Procedures of the House, 112th Cong., 1st sess. (Washington: GPO, 2011), ch. 4, §6, pp. 76-77. c11173008 Congressional Research Service 9 Continuing Resolutions: Overview of Components and Recent Practices . prohibit non-germane amendments that include legislative provisions either on the Senate floor or as an amendment between the houses.25 While these Senate restrictions do apply in the case of CRs, there is considerable leeway on when such provisions may be included, such as when the Senate amends a legislative provision included by the House.26 The rules of the House and Senate, are not self-enforcing. A point of order must be raised and sustained to prevent any legislative language from being considered and enacted.27 Substantive provisions in continuing resolutionsCRs have included language that established major new policies, such as a FY1985 continuing resolutionan FY1985 CR, which contained the Comprehensive Crime Control Act of 1984.28 More frequently, continuing resolutionsCRs have been used to amend or renew provisions of law. For example, Section 140 of P.L. 112-33 retroactively renewed import restrictions under the Burmese Freedom and Democracy Act of 2003 (P.L. 108-61): (a) Renewal of Import Restrictions Under Burmese Freedom and Democracy Act of 2003.— (1) In general.—Congress approves the renewal of the import restrictions contained in section 3(a)(1) and section 3A (b)(1) and (c)(1) of the Burmese Freedom and Democracy Act of 2003. (2) Rule of construction.—This section shall be deemed to be a ``renewal resolution” for purposes of section 9 of the Burmese Freedom and Democracy Act of 2003. (b) Effective Date.—This section shall take effect on July 26, 2011. 24 House Rule XXI, clause 2, prohibits such language in general appropriations measures and applicable amendments. House Rule XXII, clause 5, in effect, generally extends the House Rule XXI, clause 2, prohibition to conference reports. Continuing resolutions, however, are not considered to be general appropriations bills. W[illia]m Holmes Brown, Charles W. Johnson, and John V. Sullivan, House Practice: A Guide to the Rules, Precedents and Procedures of the House, 112th Cong., 1st sess. (Washington: GPO, 2011), chapter 4, § 6, pp. 76-77. 25 Senate Rule XVI, paragraphs 2-6. 26 CRs have also contained legislative provisions that temporarily extended expiring laws. For example, Section 118 of P.L. 111-242 provided a temporary extension of a section in the FY2006 National Defense Authorization Act: The authority provided by section 1202 of the National Defense Authorization Act for Fiscal Year 2006 (P.L. 109-163), as most recently amended by section 1222 of the National Defense Authorization Act for Fiscal Year 2010 (P.L. 111-84; 123 Stat. 2518), shall continue in effect through the date specified in section 106(3) of this Act. Legislative provisions that temporarily extend expiring laws are effective through the date the CR expires, unless otherwise specified. 25 Senate Rule XVI, paragraphs 2-6. For further information on House and Senate restrictions on legislation in appropriations, see CRS Report R41634, Limitations in Appropriations Measures: An Overview of Procedural Issues, by Jessica Tollestrup. 27 For further information on points of order, see CRS Report 98-307, Points of Order, Rulings, and Appeals in the House of Representatives, by Valerie Heitshusen and CRS Report 98-306, Points of Order, Rulings, and Appeals in the Senate, by Valerie Heitshusen. 28 P.L. 98-473, 98 Stat. 1837. 26 c11173008 Congressional Research Service 10 Continuing Resolutions: Overview of Components and Recent Practices Continuing resolutions have also contained legislative provisions that temporarily extended expiring laws. For example, Section 118 of P.L. 111-242 provided a temporary extension of a section in the FY2006 National Defense Authorization Act: The authority provided by section 1202 of the National Defense Authorization Act for Fiscal Year 2006 (P.L. 109-163), as most recently amended by section 1222 of the National Defense Authorization Act for Fiscal Year 2010 (P.L. 111-84; 123 Stat. 2518), shall continue in effect through the date specified in section 106(3) of this Act. Legislative provisions that temporarily extend expiring laws are effective through the date the continuing resolution expires, unless otherwise specified. The Enactment of Regular Appropriations Bills and Use of Continuing Resolutions, FY1977-FY2012. The Enactment of Regular Appropriations Bills and Use of CRs, FY1977-FY2015 As mentioned previously, regular appropriations were enacted after October 1 in all but four fiscal years between FY1977 and FY2012FY2015. Consequently, continuing resolutionsCRs have been needed in almost all of these years to prevent one or more funding gaps from occurring.29 Table 1 provides an overview of the enactment of regular appropriations bills and the use of continuing resolutions CRs between FY1977 and FY2012FY2015. Excluding the four fiscal years that all appropriations were enacted on time (FY1977, FY1989, FY1995, and FY1997), over half of the regular regular appropriations bills for a fiscal year were enacted on time in only one instance (FY1978). In all other fiscal years, fewer than six regular appropriations acts were enacted on or before October 1. In addition, in 1113 out of the 3639 years during this period, no regular appropriations bills were were enacted prior to the start of the fiscal year. FiveEight of these fiscal years have occurred in the interval interval since FY2001. Table 1. The Enactment of Regular Appropriations Bills and Use of Continuing Resolutions, FY1977-FY2012 Regular Appropriations Bills (CRs), FY1977-FY2015 Fiscal Year Number of Regular Appropriations Billsa Regular Appropriations Bills Enacted on or before October 1 Enacted in Continuing Resolutions Continuing Resolutions Enactedb Before October 1 1977 13 13 0 (2)c 1978 13 9 1 3 1979 13 5 1 1 1980 13 3 3 2 1981 13 1 5 3 1982 13 0 41 4 1983 13 1 7 22 1984 13 4 2 1985 13 4 5 1986 13 0 5 1987 13 0 6 1988 13 0 5 1989 13 13 0 1990 13 1 3 1991 13 0 5 1992 13 3 4 CRs Enactedb 29 For further information on the funding gaps that occurred during this period, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by Jessica Tollestrup. c11173008 Congressional Research Service 11 Continuing Resolutions: Overview of Components and Recent Practices Regular Appropriations Bills . Fiscal Year Number of Regular Appropriations Billsa Regular Appropriations Bills Enacted on or before October 1 Enacted in Continuing Resolutions Continuing Resolutions Enactedb 1984 13 4 3 2 1985 13 4 8 5 1986 13 0 7 5 1987 13 0 13 6 1988 13 0 13 5 1989 13 13 0 0 1990 13 1 0 3 1991 13 0 0 5 1992 13 4 1 4 Before October 1 1993 13 1 0 1 1994 13 2 0 3 1995 13 13 0 01996 13 0 0d 13 1997 13 (13)e 0d 0 1998 13 1 0 6 1999 13 1 0 6 2000 13 4 0 7 2001 13 2 0 21 2002 13 0 0 8 2003 13 0 0f 8 2004 13 3 0 5 2005 13 1 0 3 2006 11 2 0 3 2007 11 1 9 4 2008 12 0 0 4 2009 12 (3)g 0ge 2 2010 12 1 0 2 2011 12 0 11 8 2012 12 0 3h 5 19965 2013 12 0 2 2014 12 0 4 2015 12 0 5 CRs Enactedb Sources: U.S. Congress, Senate Committee on Appropriations, Appropriations, Budget Estimates, Etc., 94th Congress, 2nd session -104th Congress, 1st session (Washington: GPO, 1976-1995). U.S. Congress, House, of Representatives, Calendars of the U.S. House of Representatives and History of Legislation, 104th Congress, 1st session -112th session-113th Congress, 1st session (Washington: GPO, 1995-2011). 2012). CRS appropriations status tables (FY1999FY2015), http://www.crs.gov/pages/AppropriationsStatusTable.aspx. c11173008 a. Between the 95th and 108th Congresses, there were 13 House and Senate Appropriations subcommittees responsible for one regular appropriations bill each. During the 109th Congress, due to subcommittee realignment, the total number of regular appropriations bills was effectively reduced to 11 during each year of thisthe Congress. Beginning in the 110th Congress, subcommittee jurisdictions were again realigned for a Congressional Research Service 12 Continuing Resolutions: Overview of Components and Recent Practices total of 12 subcommittees, each of which is currently responsible for a single regular appropriations bill. For further information on subcommittee realignment during this period, see CRS Report RL31572, Appropriations Subcommittee Structure: History of Changes from 1920-2011 to 2013, by Jessica Tollestrup. b. For further information on each of these continuing resolutionsCRs, see Table 4. c. Although all 13 FY1977 regular appropriations bills became law on or before the start of the fiscal year, two CRs were enacted. These CRs generally provided funding for certain activities that had not been included in the regular appropriations acts. d. An FY1996 CR (P.L. 104-99) provided full-year funding for the FY1996 foreign operations regular bill; however, the CR provided that the foreign operations measure be enacted separately (P.L. 104-107). eCongressional Research Service 12 Continuing Resolutions: Overview of Components and Recent Practices . d. This number reflects six regular acts being combined to form an omnibus appropriations act, and enacting and the other seven bills individually. f. One measure (P.L. 108-7) originated in the form of a continuing resolution, but in conference it was converted into an omnibus appropriations resolution. g seven bills being enacted individually. e. Three regular appropriations bills were packaged into a single act that also included the initial FY2010 CR (P.L. 110-329). h. Three regular appropriations bills were packaged into a single act that also included the third FY2012 CR (P.L. 112-55). Regular appropriations acts were enacted in continuing resolutions in 14 fiscal years. Although 12 of these fiscal years were prior to FY1992, the other two instances occurred recently—in FY2011 and FY2012. Continuing resolutionsCRs were enacted in all but three of these fiscal years (FY1989, FY1995, and FY1997). In FY1977, although all 13 regular appropriations bills became law on or before the start of the fiscal year, two CRs were enacted to provide funding for certain activities that had not been been included in the regular appropriations acts. Duration and Frequency of Continuing Resolutions, FY1998-FY2012FY2015 In the interval since FY1997, (the most recent fiscal year that all regular appropriations bills were completed on time), CRs, continuing resolutions have been a significant element of the annual appropriations process. As shown in Table 2, a total of 92 continuing resolutions103 CRs were enacted into law during this period. While the average number of such measures enacted per year was about six (6.15.7), the number enacted ranged from two measures (for FY2009, FY2010, and FY2013) to 21 (for FY2001). During the past 18 fiscal years, Congress provided funding by means of a CR for an average of almost five months (140.6 days) each fiscal year. Taking into account the total duration of all CRs for each fiscal year, the period for which continuing appropriations were provided ranged from 21 days to 365 days. On average, each of the 103 CRs lasted for about 25 (24.6) days; 49 of these were for seven days or fewer.30 Three full-year CRs were used during this period, for FY2007, FY2011, and FY2013. In the first four instances (FY1998-FY2001), the expiration date of the final CR was set in the first quarter of the fiscal year on a date occurring between October 21 and December 21. The expiration date in the final CR for the next three fiscal years (FY2002-FY2004), however, was set in the following session of Congress on a date occurring between January 10 and February 20. In five of the next 11 fiscal years (FY2005, FY2006, FY2008, FY2010, and FY2012), the expiration dates were in the first quarter of the fiscal year on a date occurring between December 8 and December 31. For the remaining fiscal years, the final CRs were enacted during the next session of Congress. In one instance, the final CR for the fiscal year expired during the month of January (FY2014). In two instances, the final CR expired in March (FY2009 and FY2015). Three other final CRs—for FY2007, FY2011, and FY2013—provided funding through the end of the fiscal year and FY2010) to 21 (for FY2001). Table 2. Number and Duration of Continuing Resolutions (CRs): FY1998-FY2012FY2015 Fiscal Year Number of Continuing ResolutionsCRs Total Duration in Daysa Average Duration for Each Act Final Expiration DateDateb 1998 6 57 9.5 11-26-1997 1999 6 21 3.5 10-21-1998 2000 7 63 9.0 12-02-1999 2001 21 82 3.9 12-21-200030 The fifth CR enacted for FY2004, P.L. 108-185, did not change the expiration date of January 31, 2004, set in the preceding CR. c11173008 Congressional Research Service 13 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year Number of Continuing ResolutionsCRs Total Duration in Daysa Average Duration for Each Act Final Expiration DateDateb 1999 6 21 3.5 10-21-1998 2000 7 63 9.0 12-02-1999 2001 21 82 3.9 12-21-2000 2002 8 102 12.8 01-10-2002 2003 8 143 17.9 02-20-2003 2004 5b5c 123 24.6 01-31-2004 2005 3 69 23.0 12-08-2004 2006 3 92 30.7 12-31-2005 2007 4 365 91.3 09-30-2007 2008 4 92 23.0 12-31-2007 2009 2 162 81.0 03-11-2009 2010 2 79 39.5 12-18-2009 2011 8 365 45.6 9-30-2011 2012 5 84 16.8 12-23-2011 Total 92 1,899 — — Annual Average 6.1 126.6 28.82013 2 365 182.5 9-30-2013 2014 4d 110d 27.5 01-18-2014 2015 5 156 31.3 03-06-2015 Total 103 2,530 — — Annual Average 5.7 140.6 24.6 — Sources: Prepared by the Congressional Research Service using data from (1) the Legislative Information System; (2) Congressional Research Service, Appropriations Status Tablesappropriations status tables (various fiscal years), available at http://crs.gov/ Pages/appover.aspx; and (3) various other sources. c11173008 a. Duration in days is measured, in the case of the initial continuing resolutionfirst CR for a fiscal year, from the first day of the year (October 1). For example, the a CR enacted on September 30 that provided funding through October 12 would be measured as having a 12 a12-day duration. For subsequent continuing resolutions CRs for a fiscal year, duration in days is measured from the day after the expiration of the preceding continuing resolution. b. The fifth continuing resolution for FY2004 did not change the expiration date of January 31, 2004, established in the preceding continuing resolution. During the past 15 fiscal years, Congress provided funding by means of a continuing resolution for an average of more than four months (126.6 days) each fiscal year. Taking into account the total duration of all CRs for each fiscal year, the period for which continuing appropriations were provided ranged from 21 days to 365 days. On average, each of the 92 continuing resolutions lasted for almost 29 (28.8) days; 45 of these were for seven days or fewer.30 Two full-year CRs were used during this period, for FY2007 and FY2011. In the first four instances (FY1998-FY2001), the expiration date in the final CR was set in the first quarter of the fiscal year, on a date occurring between October 21 and December 21. The expiration date in the final CR for the next three fiscal years (FY2002-FY2004), however, was set in the following session of Congress on a date occurring between January 10 and February 20. In five of the next eight fiscal years (FY2005, FY2006, FY2008, FY2010, and FY2012), the expiration dates were in the first quarter of the fiscal year on a date occurring between December 8 and December 31. For the remaining fiscal years, the final CRs were enacted during the next session of Congress. In one instance, the final CR for FY2009 carried an expiration date of March 30 The fifth continuing resolution enacted for FY2004, P.L. 108-185, did not change the expiration date of January 31, 2004, set in the preceding continuing resolution. Congressional Research Service 14 Continuing Resolutions: Overview of Components and Recent Practices 11, 2009. The other two final CRs, for FY2007 and FY2011, provided funding through the end of the fiscal year. Figure 1 presents a representation of both the number and duration of continuing resolutions for FY1998-FY2012. As the figure shows, there is no significant correlation between these two variables. For example, six CRs were enacted for both FY1998 and FY1999, but the same number of measures lasted for a period of 57 days for FY1998 and only 21 days for FY1999. The largest number of CRs enacted for a single fiscal year during this period—21 for FY2001— covered a period lasting 82 days, at an average duration of 3.9 days per act. The smallest number enacted—two each for FY2009 and FY2010—covered a total of 162 days and 79 days, respectively, at an average duration of 81 days and 40 days per act. Figure 1 also shows considerable mix in the use of shorter-term and longer-term continuing resolutions for a single fiscal year. For example, for FY2001, 21 CRs covered the first 82 days of the fiscal year. The first 25 days were covered by a series of four CRs lasting between five and eight days each. The next 10 days, a period of intense legislative negotiations leading up to the national elections on November 7, 2000, were covered by a series of 10 one-day CRs. The next 31 days were covered by two CRs, the first lasting 10 days and the second lasting 21 days. The first of these two CRs was enacted into law on November 4, the Saturday before the election, and extended through November 14, the second day of a lame-duck session. The second CR was enacted into law on November 15 and expired on December 5, which was 10 days before the lame-duck session ended. The remaining five CRs, which ranged in duration from one to six days, covered the remainder of the lame-duck session and several days beyond (as the final appropriations measures passed by Congress were being processed for the President’s approval).31 Table 4 provides more detailed information on the number, length, and duration of continuing resolutions enacted for FY1977-FY2012. As indicated previously, this represents the period after the start of the federal fiscal year was moved from July 1 to October 1 by the Congressional CR. b. The final expiration date is the date the CR expired. In some of these instances, the CR had previously been superseded by the enactment of the remaining regular appropriations acts for that fiscal year. For example, in FY2014, the expiration date of P.L. 113-73, the fourth CR for FY2014, was January 18, 2014. However, final regular appropriations were enacted the previous day in the Consolidated Appropriations Act, 2014 (P.L. 113-76). c. The fifth CR for FY2004 did not change the expiration date of January 31, 2004, established in the preceding CR. d. A total of four CRs were enacted for FY2014. This count includes two CRs that provided funding for only specific programs and activities during the FY2014 funding gap. The Pay Our Military Act (P.L. 113-39) was enacted on September 30, 2013. The Department of Defense Survivor Benefits Continuing Appropriations Resolution, 2014 (P.L. 113-44), was enacted on October 10, 2013. The funding provided by both of these CRs was terminated on October 17, 2013, through the enactment of at third CR, P.L. 113-46, which broadly funded the previous fiscal year’s activities through January 15, 2014. The funding provided by this third CR was extended through January 18 through the enactment of a fourth CR (P.L. 113-73). Section 118 of P.L. 113-46 provided that the time covered by that act was to have begun on October 1, 2013. To preserve counting consistency, the FY2014 duration of days for the purposes of this table and Figure 1 Congressional Research Service 14 Continuing Resolutions: Overview of Components and Recent Practices . begins on October 1 and ends on January 18, 2014. For further information on the FY2014 funding gap and congressional action on CRs, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by Jessica Tollestrup. Figure 1 presents a representation of the duration of CRs for FY1998-FY2015. As the figure shows, there is no significant correlation between these two variables. For example, six CRs were enacted for both FY1998 and FY1999, but the same number of measures lasted for a period of 57 days for FY1998 and only 21 days for FY1999. The largest number of CRs enacted for a single fiscal year during this period—21 for FY2001—covered a period lasting 82 days at an average duration of 3.9 days per act. The smallest number enacted—two each for FY2009, FY2010, and FY2013—covered 162 days, 79 days, and 365 days, respectively. Figure 1 also shows considerable mix in the use of shorter-term and longer-term CRs for a single fiscal year. For example, for FY2001, 21 CRs covered the first 82 days of the fiscal year. The first 25 days were covered by a series of four CRs lasting between five and eight days each. The next 10 days, a period of intense legislative negotiations leading up to the national elections on November 7, 2000, were covered by a series of 10 one-day CRs. The next 31 days were covered by two CRs, the first lasting 10 days and the second lasting 21 days. The first of these two CRs was enacted into law on November 4, the Saturday before the election, and extended through November 14, the second day of a lame-duck session. The second CR was enacted into law on November 15 and expired on December 5, which was 10 days before the lame-duck session ended. The remaining five CRs, which ranged in duration from one to six days, covered the remainder of the lame-duck session and several days beyond (as the final appropriations measures passed by Congress were being processed for the President’s approval).31 Table 4 provides more detailed information on the number, length, and duration of CRs enacted for FY1977-FY2015. As indicated previously, this represents the period after the start of the federal fiscal year was moved from July 1 to October 1 by the Congressional Budget Act. 31 For further information on the appropriations context for FY2001, see “Longest Appropriations Cycle in Five Years Ends with Omnibus Spending Bill,” Congressional Quarterly Almanac, 106th Cong., 2nd sess. (2000), vol. LVI, pp. 2-3 through 2-6. c11173008 Congressional Research Service 15 . Figure 1. Duration of Continuing Resolutions: FY1998-FY2012 57 1998 1999 21 63 2000 82 2001 2002 102 143 Fiscal Year 2003 2004 123 69 2005 2006 92 365 2007 2008 92 2009 162 79 2010 2011 365 84 2012 0 100 200 300 400 Number of Days (CRs): FY1998-FY2015 Note: Each segment of a bar for a fiscal year represents the duration in days of one continuing resolutionCR. The left-most segment represents the first continuing resolution, CR, effective beginning on October 1 (the start of the fiscal year). Duration in days is measured, inIn the case of the initial continuing resolutionCR for a fiscal year, duration in days is measured from the first day of the year through the expiration date. For subsequent continuing resolutionsCRs for a fiscal year, duration in days is measured from the day after the expiration of the preceding continuing resolution. preceding CR. Please see the notes to Table 2 in this report for a further explanation of the methodology for this figure. c11173008 CRS-16 Continuing Resolutions: Overview of Components and Recent Practices . Features of Full-Year Continuing Resolutions, FY1977-FY2012 Congress has employed full-year continuing resolutions on a number of occasions. Prior to the CRs, FY1977-FY2015 Full-year CRs have been used to provide annual discretionary spending on a number of occasions. Prior to the full implementation of the Congressional Budget Act in FY1977, full-year CRs were used occasionally, particularly in the 1970s. Full-year CRs were enacted into law for four of the six preceding fiscal years (FY1971, FY1973, FY1975, and FY1976).32 Following the successful successful completion of action on theall 13 regular appropriations acts for FY1977, Congress again found need for full-year CRs, and for each of the 11 fiscal years, FY1978-FY1988, Congress approved a fullyear CR covering at least one prior to the start of FY1977, full-year CRs were used in each of the 11 succeeding fiscal years (FY1978-FY1988) to cover at least one regular appropriations act. Three years later, Congress enacted another full-year CR, was enacted for FY1992. Most recently, full-year CRs were enacted for FY2007 and FY2011, FY2011, and FY2013. Table 3 identifies the 1415 full-year continuing resolutionsCRs enacted for the period since FY1977. Nine of the 14 full-year15 fullyear CRs during this period were enacted in the first quarter of the fiscal year—three in October, two in November, and four in December. The fivesix remaining measures, however, were enacted during the following session, between February 15 and June 5. The full -year CRs enacted during this period also varied in terms of length and the form of funding provided. Full-year continuing resolutionsCRs prior to FY1983 were relatively short measures, ranging in length from one to four pages in the Statutes-at-Large. Beginning with FY1983 and extending through FY1988, however, the measures became much lengthier, ranging from 19 to 451 pages (averaging 244 pages). The greater page length of full-year CRs enacted for the period covering FY1983-FY1988 may be explained by two factors. First, full-year CRs enacted prior to FY1983 generally established funding levels by formulaic reference. Beginning with FY1983, however, Congress began to incorporate the full text of some or all of the covered regular appropriations acts, thereby increasing its length considerably. None of the full-year CRs enacted between 1985 and 1988 used formulaic funding provisions. Secondly, the number of regular appropriations acts covered by full-year CRs increased significantly during the FY1983FY1988FY1983-FY1988 period. For the period covering FY1978-FY1982, the number of regular appropriations acts covered by CRs for the full fiscal year ranged from one to eightsix (averaging fourabout three). Beginning with FY1983 and extending through FY1988, the number of covered acts ranged from five to 13 (averaging 9.25). The three most recent full-year continuing resolutions, for FY1992, FY2007, and FY2011, largely , averaging 10.2. The next two full-year CRs, for FY1992 and FY2007, returned to the earlier practice of using formulaic references and anomalies to establish funding levels. Both the FY1992 and FY2007 CRs provided funding only through this means. The FY2011 CR provided funding by incorporating the full text of one regular appropriations bill (the FY2011 Department of Defense Appropriations Act), while providing for the activities in the other 11 bills through formulaic provisions and anomalies. As a consequence, the length of these measures was considerably shorter than the FY1983 through FY1988 full-year CRs. As a consequence, the length of these measures was considerably shorter than the FY1983 through FY1988 full-year CRs. The two most recent full-year CRs, for FY2011 and FY2013, in some respects were a hybrid of the earlier and recent approaches. The FY2011 full-year CR provided funding for 11 bills through formulaic provisions and anomalies. It also carried the full text of one regular appropriations bill in a separate division of the act (the FY2011 Department of Defense Appropriations Act). Similarly, the FY2013 CR contained the texts of five regular appropriations bills in Divisions A through E of the act—the FY2013 Agriculture, Rural Development, Food and Drug Administration, and Related Agencies Appropriations Act; the Commerce, Justice, Science, and Related Agencies Appropriations Act; the Department of Defense Appropriations Act; the 32 The full-year CR for FY1976, P.L. 94-254, provided funding through the end of the fiscal year (June 30, 1976) as well as through the end of a “transition quarter” (September 30, 1976). The additional quarter of funding was necessary to facilitate the change in the start of the federal government fiscal year from July 1 to October 1. c11173008 Congressional Research Service 17 Continuing Resolutions: Overview of Components and Recent Practices Table 3. Full-Year Continuing Resolutions, FY1977-FY2012 Included Formulaic Funding Provision(s)? Number of Appropriations Acts Covereda. Department of Homeland Security Appropriations Act; and the Military Construction and Veterans Affairs and Related Agencies Appropriations Act. In addition, Division F was characterized as providing continuing appropriations for the remaining seven regular appropriations bills through formulaic provisions and anomalies. Unlike previous years, the formula for providing continuing appropriations was based on the amount provided in FY2012 rather than a rate. Table 3. Appropriations Acts Containing Full-Year Continuing Resolutions (CRs), FY1977-FY2015 Number of Appropriations Acts Covered or Contained in the Acta Fiscal Year Public Law Number Enactment Date Page Length (Statutesat-Large) Included Formulaic Funding Provision(s)? 1978 P.L. 95-205 12-09-1977 2 No 2/1313b 1979 P.L. 95-482 10-18-1978 4 No 1/13 1980 P.L. 96-123 11-20-1979 4 Yes 5/13 Yes 8b/136/13c 1981 P.L. 97-12 06-05-1981 2b2d Yes 5/13d 1982 P.L. 97-161 03-31-1982 1 Yes 4c/133/13e 1983 P.L. 97-377 12-21-1982 95 Yes 7/13 1984 P.L. 98-151 11-14-1983 19 Yes 5/1313f 1985 P.L. 98-473 10-12-1984 363 No 9/1313g 1986 P.L. 99-190 12-19-1985 142 No 8/13 1987 P.L. 99-591 10-30-1986 391 No 13/13 1988 P.L. 100-202 12-22-1987 451 No 13/13 1992 P.L. 102-266 04-01-1992 8 Yes 10d/131/13i 2007 P.L. 110-5 02-15-2007 53 Yes 9e/119/11j 2011 P.L. 112-10 04-15-2011 98 Yes 12/1212k 2013 P.L. 113-6 03-26-2013 240 Yes 12/12l Sources: Prepared by the Congressional Research Service using data from (1) the Legislative Information System; (2) Congressional Research Service, Appropriations Status Tablesappropriations status tables (various fiscal years), available at http://crs.gov/ Pages/appover.aspx; and (3) various other sources. a. Between the 95th and 108th Congresses, there were 13 House and Senate Appropriations subcommittees responsible for one regular appropriations bill each. During the 109th Congress, due to subcommittee realignment, the total number of regular appropriations bills was effectively reduced to 11 during each year of thisthe Congress. Beginning in the 110th Congress, subcommittee jurisdictions were again realigned for a total of 12 subcommittees, each of which is currently responsible for a single regular appropriations bill. For further information on subcommittee realignment during this period, see CRS Report RL31572, Appropriations Subcommittee Structure: History of Changes from 1920-2011 to 2013, by Jessica Tollestrup. c11173008 b. This full-year continuing appropriations for the District of Columbia provided by this act were later superseded by a standalone regular appropriations act (P.L. 95-288). c. Some of the appropriations acts covered by this full year CR were later superseded by standalone regular appropriations acts for Interior and Related Agencies (P.L. 96-126); Military Construction (96-130); Department of Defense (P.L. 96-154); and Transportation (P.L. 96-131). d. This full-year CR was contained within the FY1981 Supplemental Appropriations and Rescissions Act 1981 (P.L. 97-12, see Title IV, “Further Continuing Appropriations”). Title IV extended through the end of the Congressional Research Service 18 Continuing Resolutions: Overview of Components and Recent Practices . e. f. Some of the appropriations acts covered by this full-year CR were later superseded by standalone regular appropriations acts for the Department of Defense (P.L. 98-121); Commerce, Justice, and State, the Judiciary, and Related Agencies (P.L. 98-166); and the Treasury, Postal Service and General Government (P.L. 98-151). g. The full-year continuing appropriations for the Departments of Labor, Health and Human Services, Education, and Related Agencies that were provided by this act were later superseded by a standalone regular appropriations act (P.L. 98-619). h. The Departments of Labor, Health and Human Services, Education, and Related Agencies provided by the CR were superseded by the enactment of P.L. 99-178. i. This full-year CR extended through the end of FY1992 the expiration date of P.L. 102-163, which covered appropriations that had not yet been enacted for Foreign Operations, Export Financing, and Related Programs. Despite the reorganization of the House and Senate Appropriations subcommittees at the beginning of the 110th Congress, the FY2007 CR (P.L. 110-5), which was enacted on February 15, 2007, reflected the subcommittee jurisdictions in the 109th Congress. P.L. 112-10, Division B, provided continuing appropriations through the end of the fiscal year for Agriculture, Rural Development, Food and Drug Administration, and Related Agencies; Commerce, Justice, Science, and Related Agencies; Energy and Water Development and Related Agencies; Financial Services and General Government; Department of Homeland Security; Department of the Interior, Environment, and Related Agencies; Departments of Labor, Health and Human Services, Education, and Related Agencies; Legislative Branch; Military Construction and Veterans Affairs and Related Agencies; Department of State, Foreign Operations, and Related Programs; and Transportation, Housing and Urban Development, and Related Agencies. Division A contained the text of the Department of Defense Appropriations Act. j. k. l. c11173008 fiscal year the expiration of P.L. 96-536, which covered the appropriations acts that had not yet been enacted for Foreign Assistance; the Legislative Branch; Departments of Labor, Health and Human Services, Education, and Related Agencies; Departments of State, Justice, and Commerce, the Judiciary, and Related Agencies; the Treasury, Postal Service and General Government. This full-year CR extended through the end of the fiscal year the expiration date of P.L. 97-92, which covered the appropriations acts that had not yet been enacted for the Treasury, Postal Service and General Government; Departments of Commerce, Justice, and State, the Judiciary; and Departments of Labor, Health and Human Services, Education, and Related Agencies. P.L. 113-6, Division F, provided continuing appropriations for FY2013 for Energy and Water Development and Related Agencies; Financial Services and General Government; Department of the Interior, Environment, and Related Agencies; Departments of Labor, Health and Human Services, Education, and Related Agencies; Legislative Branch; Department of State, Foreign Operations, and Related Programs; and Transportation, Housing and Urban Development, and Related Agencies. Divisions A through E contained the texts of the Agriculture, Rural Development, Food and Drug Administration, and Related Agencies Appropriations Act; Commerce, Justice, Science, and Related Agencies Appropriations Act; the Department of Defense Appropriations Act; Department of Homeland Security Appropriations Act; and Military Construction and Veterans Affairs and Related Agencies Appropriations Act. Congressional Research Service 19 Continuing Resolutions: Overview of Components and Recent Practices . Table 4. Number, Page Length, and Duration of Continuing Resolutions (CRs): FY1977-FY2015 Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively 1977 1 b. This full-year CR was contained within the FY1981 Supplemental Appropriations and Rescissions Act 1981 (P.L. 97-12, see Title IV, “Further Continuing Appropriations”). Title IV extended through the end of the fiscal year the expiration of P.L. 96-536, which included appropriations for the Legislative Branch; Departments of Labor, Health and Human Services, and Education, and Related Agencies; Agriculture, Rural Development and Related Agencies; District of Columbia; Department of Housing and Urban Development-Independent Agencies; Department of Interior and Related Agencies; Departments of State, Justice, and Commerce, the Judiciary, and Related Agencies; Department of Defense. c. This full-year CR extended through the end of the fiscal year the expiration date of P.L. 97-92, which included appropriations for Treasury, Postal Service and General Government; Department of Transportation and Related Agencies; Department of Housing and Urban Development and Independent Agencies; Departments of Commerce, Justice, and State, the Judiciary. d. This full-year CR extended through the end of FY1992 the expiration date of P.L. 102-163, which included appropriations for Agriculture, Rural Development, Food and Drug Administration, and Related Agencies; Departments of Commerce, Justice, and State, the Judiciary; Department of Defense; Foreign Operations, Export Financing, and Related Programs; Department of the Interior and Related Agencies; Departments of Labor, Health and Human Services, and Education, and Related Agencies; Military Construction; Department of Transportation and Related Agencies; Treasury, Postal Service, and General Government; Departments of Veterans Affairs and Housing and Urban Development, and Independent Agencies. Congressional Research Service 18 Continuing Resolutions: Overview of Components and Recent Practices e. Despite the reorganization of the House and Senate Appropriations subcommittees at the beginning of the 110th Congress, the FY2007 CR (P.L. 110-5), which was enacted on February 15, 2007, reflected the subcommittee jurisdictions in the 109th Congress. Table 4. Number, Page Length, and Duration of Continuing Resolutions: FY1977-FY2012 Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively 1977 1 Public Law Number Statutesat-Large Citation 1 P.L. 94473 2 2 1 Page Length Enactment Date Expiration Date Duration in Daysa 90 Stat. 20652067 3 10-11-1976 03-31-1977 183 P.L. 9516 91 Stat. 28 1 04-01-1977 04-30-1977 30 3 P.L. 95130 91 Stat. 11531154 2 10-13-1977 10-31-1977 31 2 4 P.L. 95165 91 Stat. 13231324 2 11-09-1977 11-30-1977 30 3 5 P.L. 95205 91 Stat. 14601461 2 12-09-1977 09-30-1978 304 1979 1 6 P.L. 95482 92 Stat. 16031605 3 10-18-1978 09-30-1979 365 1980 1 7 P.L. 9686 93 Stat. 656-663 8 10-12-1979 11-20-1979 51 2 8 P.L. 96123 93 Stat. 923-926 4 11-20-1979 09-30-1980 315 1 9 P.L. 96369 94 Stat. 13511359 9 10-01-1980 12-15-1980 76 2 10 P.L. 96536 94 Stat. 31663172 7 12-16-1980 06-05-1981 172 3 11 P.L. 9712b 95 Stat. 95-96 2 06-05-1981 09-30-1981 117 1 12 P.L. 9751 95 Stat. 958-968 11 10-01-1981 11-20-1981 51 2 13 P.L. 9785 95 Stat. 1098 1 11-23-1981 12-15-1981 22 3 14 P.L. 9792 95 Stat. 11831203 21 12-15-1981 03-31-1982 106 4 15 P.L. 97161 96 Stat. 22 1 03-31-1982 09-30-1982 183 1978 1981 19821 16 P.L. 97276 96 Stat. 11861205 20 10-02-1982 12-17-1982 78 1978 1981 1982 1983 c11173008 Public Law Number Congressional Research Service 1920 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 1984 1985 1986 1987 c11173008Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively 1983 1 1984 1985 1986 19872 Public Law Number Statutesat-Large Citation 16 P.L. 97276 2 17 117 P.L. 97377 1 18 2 Page Length Enactment Date Expiration Date Duration in Daysa 96 Stat. 11861205 20 10-02-1982 12-17-1982 78 P.L. 97377 96 Stat. 18301924 95c 12-17-1982 09-30-1983 287 18 P.L. 98107 97 Stat. 733-743 11 10-01-1983 11-10-1983 41 2 19 P.L. 98151 97 Stat. 964-982 19 11-1014-1983 09-30-1984 325321 1 20 P.L. 98441 98 Stat. 16991701 3 10-03-1984 10-03-1984 3 2 21 P.L. 98453 98 Stat. 1731 1 10-05-1984 10-05-1984 2 3 22 P.L. 98455 98 Stat. 1747 1 10-06-1984 10-09-1984 4 4 23 P.L. 98461 98 Stat. 1814 1 10-10-1984 10-11-1984 2 5 24 P.L. 98473 98 Stat. 18371976 140d 10-12-1984 09-30-1985 354 1 25 P.L. 99103 99 Stat. 471-473 3 09-30-1985 11-14-1985 45 2 26 P.L. 99154 99 Stat. 813 1 11-14-1985 12-12-1985 28 3 27 P.L. 99179 99 Stat. 1135 1 12-13-1985 12-16-1985 4 4 28 P.L. 99184 99 Stat. 1176 1 12-17-1985 12-19-1985 3 5 29 P.L. 99190 99 Stat. 11851326 142e 12-19-1985 09-30-1986 285 1 30 P.L. 99434 100 Stat. 10761079 4 10-01-1986 10-08-1986 8 2 31 P.L. 99464 100 Stat. 11851188 4 10-09-1986 10-10-1986 2 3 32 P.L. 99465 100 Stat. 1189 1 10-11-1986 10-15-1986 5 4 33 P.L. 99491 100 Stat. 1239 1 10-16-1986 10-16-1986 1 5 34 P.L. 99500f 100 Stat. 1783 through 1783-385 386 10-18-1986 09-30-1987 349 Congressional Research Service 2021 Continuing Resolutions: Overview of Components and Recent Practices Fiscal Year Number of Acts by . Fiscal Year Number of Acts Cumulatively 56f Public Law Number Statutesat-Large Citation 34 P.L. 99500f 6f 35 135 P.L. 99591f 1 36 2 Page Length Enactment Date Expiration Date Duration in Daysa 100 Stat. 1783 through 1783-385 386 10-18-1986 09-30-1987 349 P.L. 99591f 100 Stat. 3341 through 3341-389 390 10-30-1986 [n/a]f — 36 P.L. 100120 101 Stat. 789-791 3 09-30-1987 11-10-1987 41 2 37 P.L. 100162 101 Stat. 903 1 11-10-1987 12-16-1987 36 3 38 P.L. 100193 101 Stat. 1310 1 12-16-1987 12-18-1987 2 4 39 P.L. 100197 101 Stat. 1314 1 12-20-1987 12-21-1987 3 5 40 P.L. 100202 101 Stat. 1329 through 1329-450 451g 12-22-1987 09-30-1988 284 1989 [none] — — — — — — — 1990 1 41 P.L. 101100 103 Stat. 638-640 3 09-29-1989 10-25-1989 25 2 42 P.L. 101130 103 Stat. 775-776 2 10-26-1989 11-15-1989 21 3 43 P.L. 101154 103 Stat. 934 1 11-15-1989 11-20-1989 5 1 44 P.L. 101403 104 Stat. 867-870 4h 10-01-1990 10-05-1990 5 2 45 P.L. 101412 104 Stat. 894-897 4 10-09-1990 10-19-1990 14 3 46 P.L. 101444 104 Stat. 10301033 4 10-19-1990 10-24-1990 5 4 47 P.L. 101461 104 Stat. 10751078 4 10-25-1990 10-27-1990 3 5 48 P.L. 101467 104 Stat. 10861087 2 10-28-1990 11-05-1990 9 1 49 P.L. 102109 105 Stat. 551-554 4 09-30-1991 10-29-1990 29 2 50 P.L. 102145 105 Stat. 968-871 4 10-28-1991 11-14-1990i 16i 1988 1991 1992 Congressional Research Service — — — — — — 211990 16i 3 51 P.L. 102163 105 Stat. 1048 1 11-15-1991 11-26-1990 12 4 52 P.L. 102266 106 Stat. 92-99 8 04-01-1992 09-30-1992 183 1988 1991 1992 c11173008 Number of Acts by Fiscal Year Congressional Research Service 22 Continuing Resolutions: Overview of Components and Recent Practices . c11173008 Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 3 51 P.L. 102163 4 52 1993 1 1994 Fiscal Year1993 1 53 P.L. 102376 1994 1 54 2 Page Length Enactment Date Expiration Date Duration in Daysa 105 Stat. 1048 1 11-15-1991 11-26-1990 12 P.L. 102266 106 Stat. 92-99 8 04-01-1992 09-30-1992 183 53 P.L. 102376 106 Stat. 13111314 4 10-01-1992 10-05-1992 5 1 54 P.L. 10388 107 Stat. 977-980 4 09-30-1993 10-21-1993 21 2 55 P.L. 103113 107 Stat. 1114 1 10-21-1993 10-28-1993 7 3 56 P.L. 103128 107 Stat. 1355 1 10-29-1993 11-10-1993 13 1995 [none] — — — — — — — 1996 1 57 P.L. 10431 109 Stat. 278-282 5 09-30-1995 11-13-1995 44 2 58 P.L. 10454 109 Stat. 540-545 6 11-19-1995 11-20-1995 7 3 59 P.L. 10456 109 Stat. 548-553 6 11-20-1995 12-15-1995 25 4 60 P.L. 10469 109 Stat. 767-772 6 12-22-1995 01-03-1996 19j 5 61 P.L. 10490 110 Stat. 3-6 4 01-04-1996 01-25-1996 22j 6 62 P.L. 10491 110 Stat. 10-14 5 01-06-1996 09-30-1996 290j 7 63 P.L. 10492 110 Stat. 16-24 9 01-06-1996 09-30-1996 290j 8 64 P.L. 10494 110 Stat. 25 1 01-06-1996 01-26-1996 42 9 65 P.L. 10499 110 Stat. 26-47 22 01-26-1996 03-15-1996 49j 10 66 P.L. 104116 110 Stat. 826 1 03-15-1996 03-22-1996 7 11 67 P.L. 104118 110 Stat. 829 1 03-22-1996 03-29-1996 7 12 68 P.L. 104122 110 Stat. 876-878 3 03-29-1996 04-24-1996 26j 13 69 P.L. 104131 110 Stat. 1213 1 04-24-1996 04-25-1996 1 1997 [none] — — — — — — — 1998 1 70 P.L. 10546 111 Stat. 11531158 6 09-30-1997 10-23-1997 23 2 71 P.L. 10564 111 Stat. 1343 1 10-23-1997 11-07-1997 15 Congressional Research Service 23[none] — 1997 Congressional Research Service — — — — — — — — — — — — 22 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 1999 2000 2001 c11173008Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 1998 1 70 P.L. 10546 2 71 3 1999 20003 72 P.L. 10568 4 73 5 Page Length Enactment Date Expiration Date Duration in Daysa 111 Stat. 11531158 6 09-30-1997 10-23-1997 23 P.L. 10564 111 Stat. 1343 1 10-23-1997 11-07-1997 15 72 P.L. 10568 111 Stat. 1453 1 11-07-1997 11-09-1997 2 4 73 P.L. 10569 111 Stat. 1454 1 11-09-1997 11-10-1997 1 5 74 P.L. 10571 111 Stat. 1456 1 11-10-1997 11-14-1997 4 6 75 P.L. 10584 111 Stat. 1628 1 11-14-1997 11-26-1997 12 1 76 P.L. 105240 112 Stat. 15661571 6 09-25-1998 10-09-1998 9 2 77 P.L. 105249 112 Stat. 1868 1 10-09-1998 10-12-1998 3 3 78 P.L. 105254 112 Stat. 1888 1 10-12-1998 10-14-1998 2 4 79 P.L. 105257 112 Stat. 1901 1 10-14-1998 10-16-1998 2 5 80 P.L. 105260 112 Stat. 1919 1 10-16-1998 10-20-1998 4 6 81 P.L. 105273 112 Stat. 2418 1 10-20-1998 10-21-1998 1 1 82 P.L. 10662 113 Stat. 505-509 5 09-30-1999 10-21-1999 21 2 83 P.L. 10675 113 Stat. 1125 1 10-21-1999 10-29-1999 8 3 84 P.L. 10685 113 Stat. 1297 1 10-29-1999 11-05-1999 7 4 85 P.L. 10688 113 Stat. 1304 1 11-05-1999 11-10-1999 5 5 86 P.L. 10694 113 Stat. 1311 1 11-10-1999 11-17-1999 7 6 87 P.L. 106105 113 Stat. 1484 1 11-18-1999 11-18-1999 1 7 88 P.L. 106106 113 Stat. 1485 1 11-19-1999 12-02-1999 14 Congressional Research Service 23 Continuing Resolutions: Overview of Components and Recent Practices Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 2001 1 89 P.L. 106275 2 90 3 Page Length Enactment Date Expiration Date Duration in Daysa1 89 P.L. 106275 114 Stat. 808-811 4 09-29-2000 10-06-2000 6 2 90 P.L. 106282 114 Stat. 866 1 10-06-2000 10-14-2000 8 3 91 P.L. 106306 114 Stat. 1073 1 10-13-2000 10-20-2000 6 4 92 P.L. 106344 114 Stat. 1318 1 10-20-2000 10-25-2000 5 5 93 P.L. 106358 114 Stat. 1397 1 10-26-2000 10-26-2000 1 6 94Congressional Research Service 24 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 2002 c11173008 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 5 93 P.L. 106358 6 94 7 Page Length Enactment Date Expiration Date Duration in Daysa 114 Stat. 1397 1 10-26-2000 10-26-2000 1 P.L. 106359 114 Stat. 1398 1 10-26-2000 10-27-2000 1 7 95 P.L. 106381 114 Stat. 1450 1 10-27-2000 10-28-2000 1 8 96 P.L. 106388 114 Stat. 1550 1 10-28-2000 10-29-2000 1 9 97 P.L. 106389 114 Stat. 1551 1 10-29-2000 10-30-2000 1 10 98 P.L. 106401 114 Stat. 1676 1 10-30-2000 10-31-2000 1 11 99 P.L. 106403 114 Stat. 1741 1 11-01-2000 11-01-2000 1 12 100 P.L. 106416 114 Stat. 1811 1 11-01-2000 11-02-2000 1 13 101 P.L. 106426 114 Stat. 1897 1 11-03-2000 11-03-2000 1 14 102 P.L. 106427 114 Stat. 1898 1 11-04-2000 11-04-2000 1 15 103 P.L. 106428 114 Stat. 1899 1 11-04-2000 11-14-2000 10 16 104 P.L. 106520 114 Stat. 24362437 2 11-15-2000 12-05-2000 21 17 105 P.L. 106537 114 Stat. 2562 1 12-05-2000 12-07-2000 2 18 106 P.L. 106539 114 Stat. 2570 1 12-07-2000 12-08-2000 1 19 107 P.L. 106540 114 Stat. 2571 1 12-08-2000 12-11-2000 3 20 108 P.L. 106542 114 Stat. 2713 1 12-11-2000 12-15-2000 4 Congressional Research Service 24 Continuing Resolutions: Overview of Components and Recent Practices Fiscal Year 2002 2003 2004 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 21 109 P.L. 106543 1 110 2 Page Length Enactment Date Expiration Date Duration in Daysa21 109 P.L. 106543 114 Stat. 2714 1 12-15-2000 12-21-2000 6 1 110 P.L. 10744 115 Stat. 253-257 5 09-28-2001 10-16-2001 16 2 111 P.L. 10748 115 Stat. 261 1 10-12-2001 10-23-2001 7 3 112 P.L. 10753 115 Stat. 269 1 10-22-2001 10-31-2001 8 4 113 P.L. 10758 115 Stat. 406 1 10-31-2001 11-16-2001 16 5 114 P.L. 10770 115 Stat. 596 1 11-17-2001 12-07-2001 21 6 115 Congressional Research Service 25 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 2003 2004 2005 c11173008 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 5 114 P.L. 10770 6 115 7 Page Length Enactment Date Expiration Date Duration in Daysa 115 Stat. 596 1 11-17-2001 12-07-2001 21 P.L. 10779 115 Stat. 809 1 12-07-2001 12-15-2001 8 7 116 P.L. 10783 115 Stat. 822 1 12-15-2001 12-21-2001 6 8 117 P.L. 10797 115 Stat. 960 1 12-21-2001 01-10-2002 20 1 118 P.L. 107229 116 Stat. 14651468 4 09-30-2002 10-04-2002 4 2 119 P.L. 107235 116 Stat. 1482 1 10-04-2002 10-11-2002 7 3 120 P.L. 107240 116 Stat. 14921495 4 10-11-2002 10-18-2002 7 4 121 P.L. 107244 116 Stat. 1503 1 10-18-2002 11-22-2002 35 5 122 P.L. 107294 116 Stat. 20622063 2 11-23-2002 01-11-2003 50 6 123 P.L. 1082 117 Stat. 5-6 2 01-10-2003 01-31-2003 20 7 124 P.L. 1084 117 Stat. 8 1 01-31-2003 02-07-2003 7 8 125 P.L. 1085 117 Stat. 9 1 02-07-2003 02-20-2003 13 1 126 P.L. 10884 117 Stat. 10421047 6 09-30-2003 10-31-2003 31 2 127 P.L. 108104 117 Stat. 1200 1 10-31-2003 11-07-2003 7 Congressional Research Service 25 Continuing Resolutions: Overview of Components and Recent Practices Fiscal Year 2005 2006 2007 2008 2009 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 3 128 P.L. 108107 4 129 5 Page Length Enactment Date Expiration Date Duration in Daysa3 128 P.L. 108107 117 Stat. 1240 1 11-07-2003 11-21-2003 14 4 129 P.L. 108135 117 Stat. 1391 1 11-22-2003 01-31-2004 71 5 130 P.L. 108185 117 Stat. 2684 1 12-16-2003 [n/a]k — 1 131 P.L. 108309 118 Stat. 11371143 7 09-30-2004 11-20-2004 51 2 132 P.L. 108416 118 Stat. 2338 1 11-21-2004 12-03-2004 13 3 133 P.L. 108434 118 Stat. 2614 1 12-03-2004 12-08-2004 5 1 134Congressional Research Service 26 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 2006 2007 2008 2009 2010 2011 c11173008 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 3 133 P.L. 108434 1 134 2 Page Length Enactment Date Expiration Date Duration in Daysa 118 Stat. 2614 1 12-03-2004 12-08-2004 5 P.L. 10977 119 Stat. 20372042 6 09-30-2005 11-18-2005 49 2 135 P.L. 109105 119 Stat. 2287 1 11-19-2005 12-17-2005 29 3 136 P.L. 109128 119 Stat. 2549 1 12-18-2005 12-31-2005 14 1 137 P.L. 109289l 120 Stat. 13111316 6 09-29-2006 11-17-2006 48 2 138 P.L. 109369 120 Stat. 2642 1 11-17-2006 12-08-2006 21 3 139 P.L. 109383 120 Stat. 2678 1 12-09-2006 02-15-2007 69 4 140 P.L. 1105 121 Stat. 8-60 53 02-15-2007 09-30-2007 227 1 141 P.L. 11092 121 Stat. 989-998 10 09-29-2007 11-16-2007 47 2 142 P.L. 110116m 121 Stat. 13411344 4 11-13-2007 12-14-2007 28 3 143 P.L. 110137 121 Stat. 1454 1 12-14-2007 12-21-2007 7 4 144 P.L. 110149 121 Stat. 1819 1 12-21-2007 12-31-2007 10 1 145 P.L. 110329 122 Stat. 35743716 143 09-30-2008 03-06-2009 157 2 146 P.L. 1116 123 Stat. 522 1 03-06-2009 03-11-2009 5 Congressional Research Service 26 Continuing Resolutions: Overview of Components and Recent Practices Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 2010 1 147 P.L. 11168n 2 148 1 2011 2012 Page Length Enactment Date Expiration Date Duration in Daysa1 147 P.L. 11168n 123 Stat. 20432053 11 10-01-2009 10-31-2009 31 2 148 P.L. 11188o 123 Stat. 29722974 3 10-30-2009 12-18-2009 48 1 149 P.L. 111242 124 Stat. 26072616 10 09-30-210 12-03-2010 64 2 150 P.L. 111290 124 Stat. 3063 1 12-04-2010 12-18-2010 15 3 151 P.L. 111317 124 Stat. 3454 1 12-18-2010 12-21-2010 3 4 152Congressional Research Service 27 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year 2012 2013 2014 2015 c11173008 Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 3 151 P.L. 111317 4 152 5 Page Length Enactment Date Expiration Date Duration in Daysa 124 Stat. 3454 1 12-18-2010 12-21-2010 3 P.L. 111322p 124 Stat. 35183521 4 12-22-2010 03-04-2011 73 5 153 P.L. 1124 125 Stat. 6-13 8 03-02-2011 03-18-2011 14 6 154 P.L. 1126 125 Stat. 23-30 8 03-18-2011 04-08-2011 21 7 155 P.L. 1128 125 Stat. 34-35 2 04-09-2011 04-15-2011 7 8 156 P.L. 11210q 125 Stat. 102-199 98 04-15-2011 09-30-2011 168 1 157 P.L. 11233 125 Stat. 363-368 6 09-30-2011 10-04-2011 4 2 158 P.L. 11236 125 Stat. 386-391 6 10-05-2011 11-18-2011 45 3 159 P.L. 11255r 125 Stat. 710 1 11-18-2011 12-16-2011 28 4 160 P.L. 11267 125 Stat. 769 1 12-16-2011 12-17-2011 1 5 161 P.L. 11268 125 Stat. 770 1 12-17-2011 12-23-2011 6 1 162 P.L. 112175 126 Stat. 1313 12 09-28-2012 03-27-2013 178 2 163 P.L. 1136 127 Stat. 198-437 240 03-26-2013 09-30-2013 (365)s 1 164 P.L. 11339 127 Stat. 532-533 2 09-30-2013 [n/a]t (17)t 2 165 P.L. 11344 127 Stat. 555-556 2 10-10-2013 12-15-2013t (8)t 3 166 P.L. 11346 127 Stat. 558-571 14 10-17-2013 01-15-2013 (107)t 4 167 P.L. 11373 128 Stat. 3 1 01-15-2013 01-18-2013 3 1 168 P.L. 113164 128 Stat. 1867 11 09-19-2014 12-11-2014 72 2 169 P.L. 113202 128 Stat. 2069 1 12-12-2014 12-13-2014 1 3 170 P.L. 113203 128 Stat. 2070 1 12-13-2014 12-17-2014 4 Congressional Research Service 28 Continuing Resolutions: Overview of Components and Recent Practices . Fiscal Year Number of Acts by Fiscal Year Number of Acts Cumulatively Public Law Number Statutesat-Large Citation 4 171 P.L. 113235 5 172 P.L. 1143 Page Length Enactment Date Expiration Date Duration in Daysa 128 Stat. 2767 1 12-16-2014 2-27-2015 72 129 Stat. 38 1 02-27-2015 03-06-2015 7 Sources: Prepared by the Congressional Research Service using data fromSources: Prepared by the Congressional Research Service using data from: (1) the Legislative Information System; (2) Congressional Research Service, Appropriations Status Tablesappropriations status tables (various fiscal years), available at http://crs.gov/ Pages/appover.aspx; and (3) various other sources. c11173008 a. Duration in days is measured, in the case of the initial continuing resolutionCR for a fiscal year, from the first day of the year (October 1) through the expiration date. For subsequent continuing resolutionsCRs for a fiscal year, duration in days is measured from the day after the expiration of the preceding continuing resolution. CR. In several instances, as appropriate, the number of days reflects an extra day in a leap year (every fourth year beginning with calendar year 1976). Several continuing resolutions Several CRs provided continuing appropriations for mixed periods of time. For example, three CRs—P.L. 96-86 (for FY1980), P.L. 97-51 (for FY1982), and P.L. 97-276 (for FY1983)—were enacted Congressional Research Service 27 Continuing Resolutions: Overview of Components and Recent Practices in November or December of the applicable year for periods covering 51 days, 51 days, and 78 days, respectively, but they also included continuing appropriations for the remainder of that fiscal year for activities covered by the Legislative Branch Appropriations Act. (See also the discussion of actions for FY1996 under footnote “j.”j.) In these instances, the “Duration in Days” column reflects the time period that applied to the greatest number of activities funded by the measure. b. Title IV (95 Stat. 95-96) of P.L. 97-12, the Supplemental Appropriations and Rescission Act for FY1981, provided continuing appropriations for FY1981; the other titles of the act (95 Stat. 14-95) are excluded from the page count. c. P.L. 97-377 incorporated the full text of various regular appropriations acts. d. Title I (98 Stat. 1837-1976) of P.L. 98-473 provided continuing appropriations for FY1985; the other title, Title II (98 Stat. 1976-2199), set forth the Comprehensive Crime Control Act of 1984, and is excluded from the page count. e. P.L. 99-190 incorporated the full text of various regular appropriations acts. f. P.L. 99-591 superseded P.L. 99-500 and corrected enrollment errors in the earlier act; both laws originated as H.J.Res. 738. g. P.L. 100-202 incorporated the full text of various regular appropriations acts. h. Title I (104 Stat. 867-870) of P.L. 101-403 provided continuing appropriations for FY1991; Titles II and III (104 Stat. 871-874) provided supplemental appropriations and are excluded from the page count. i. Section 106(c) of P.L. 102-145 provided that, as an exception to the general expiration date, continuing appropriations for the Foreign Operation Appropriations Act would expire on March 31, 1992 (a duration of 154 days). j. A total of 13 continuing resolutionsCRs were enacted for FY1996 (and one was vetoed). Two funding gaps occurred, the first in mid-November 1995 and the second from mid-December 1995 until early January 1996. The CRs for this year may be divided into two categories depending on whether their coverage generally was comprehensive was generally comprehensive or partial. Nine of the continuing resolutionsCRs enacted for FY1996 generally provided short-term funding for all activities under the regular appropriations acts that had not yet been enacted, while the other four provided funding only for selected activities within certain acts. The four acts in the latter category included the following: (1) P.L. 104-69, which funded the Aid to Families With Dependent Children (AFDC) and Foster Care and Adoption Assistance programs, programs of the District of Columbia, and certain veterans’ programs; (2) P.L. 104-90, which funded programs of the District of Columbia; (3) P.L. 104-91, Title I, which funded a variety of programs, including ones pertaining to the Peace Corps, the Federal Emergency Management Agency, the Federal Bureau of Investigation, trade adjustment assistance benefits, and the National Institutes of Health, among others; and (4) P.L. 104-92, which funded a variety of programs, including ones pertaining to nutrition services for the Congressional Research Service 29 Continuing Resolutions: Overview of Components and Recent Practices . elderly, visitor services in the National Park System, certain veterans’ programs, and programs of the District of Columbia, among others. Activities under two of the regular appropriations acts for FY1996 were funded through the end of the fiscal year (September 30, 1996) in continuing resolutionsCRs: (1) Title IV of P.L. 104-92 provided such funding for activities covered by the District of Columbia Appropriations Act; and (2) Title III of P.L. 104-99 provided such funding for activities covered by the Foreign Operations Appropriations Act. In addition, other selected activities were funded through the remainder of the fiscal year in P.L. 104-91, P.L. 104-92, and P.L. 104-122. Action on the regular appropriations acts for FY1996 was concluded with the enactment of P.L. 104-134, the Omnibus Consolidated Rescissions and Appropriations Act of 1996, on April 26, 1996 (110 Stat. 1321 through 1321-381), which provided funding for the remainder of the fiscal year for activities covered by five of the regular appropriations acts. Three of the continuing resolutionsCRs had mixed periods of duration. The duration shown in the table was determined as follows: (1) mostMost of the funding provided in P.L. 104-92 was for the remainder of the fiscal year, so a duration of 290 days was used; (2) whileWhile the funding provided in P.L. 104-99 for activities covered by the Foreign Operations Appropriations Act was for the remainder of the fiscal year, the funding provided for activities covered by four other regular appropriations acts was through March 15, 1996, so a duration of 49 days was used; and (3) mostMost of the funding provided in P.L. 104-122 was through April 24, while only one account was funded through the remainder of the fiscal year, so a duration of 26 days was used. In the case of P.L. 104-91, a measure requiring the Secretary of Commerce to convey to the Congressional Research Service 28 Continuing Resolutions: Overview of Components and Recent Practices Commonwealth of Massachusetts the National Marine Fisheries Service laboratory located on Emerson Avenue in Gloucester, Massachusetts, Title I (110 Stat. 10-14) of the act provided continuing appropriations for selected activities for the remainder of FY1996; Section 1 (110 Stat. 7-10) and Title II (110 Stat. 14-15) pertained to other matters and are excluded from the page count. Section 110 of the act made the funding effective as of December 16, 1995. c11173008 k. P.L. 108-185 contained provisions affecting funding levels for two specified programs, but did not contain a provision affecting the expiration date of January 31, 2004, established in the preceding continuing resolutionCR (P.L. 108-135). l. Continuing appropriations for FY2007 were provided by Division B (120 Stat. 1311-1316) of P.L. 109-289, the Defense Appropriations Act for FY2007; the other portions of the act (120 Stat. 1257-1311) are excluded from the page count. m. Continuing appropriations for FY2008 were provided by Division B (121 Stat. 1341-1344) of P.L. 110-116, the Defense Appropriations Act for FY2008; the other portions of the act (121 Stat. 1295-1341) are excluded from the page count. n. Continuing appropriations for FY2010 were provided by Division B (123 Stat. 2043-2053) of P.L. 111-68, the Legislative Branch Appropriations Act for FY2010; the other portions of the act (123 Stat. 2023-2043) are excluded from the page count. o. Continuing appropriations for FY2010 were provided by Division B (123 Stat. 2972-2974) of P.L. 111-88, the Interior, Environment, and Related Agencies Appropriations Act for 2010; the other portions of the act (123 Stat. 2904-2972) are excluded from the page count. p. Continuing appropriations for FY2011 were provided by Division A (124 Stat. 3518-3521) of P.L. 111-322, the Continuing Appropriations and Surface Transportation Extensions Act for 2011; the other portions of the act (124 Stat. 3522-3531) are excluded from the page count. q. Full-year continuing appropriations for FY2011 were provided by Division B (125 Stat. 102-199) of P.L. 11210, the Department of Defense and Full-Year Continuing Appropriations Act for 2011; the other portions of the act (125 Stat. 38-102, 199-212) are excluded from the page count. r. Continuing appropriations for FY2012 were provided by Division D (125 Stat. 710) of P.L. 112-55, the Consolidated and Further Continuing Appropriations Act for 2012; the other portions of the act (125 Stat. 552-709) are excluded from the page count. s. In P.L. 113-6, both the full text (Divisions A through E) and continuing (Division F) appropriations were for the entire fiscal year (FY2013) and superseded the continuing appropriations provided by P.L. 112-175. t. A total of four CRs were enacted for FY2014. This count includes two CRs that provided funding for only specific programs and activities during the FY2014 funding gap. The Pay Our Military Act (P.L. 113-39) was enacted on September 30, 2013, and provided funding for FY2014. The Department of Defense Survivor Benefits Continuing Appropriations Resolution, 2014 (P.L. 113-44), was enacted on October 10, 2013, and Congressional Research Service 30 Continuing Resolutions: Overview of Components and Recent Practices . expired on December 15, 2013. However, the funding provided by both of these CRs was terminated on October 17, 2013, through the enactment of a third CR, P.L. 113-46, which broadly funded the previous fiscal year’s activities through January 15, 2014. The funding provided by this third CR was extended through January 18 by the enactment of a fourth CR (P.L. 113-73). Section 118 of P.L. 113-46 provided that the time covered by that act was to have begun on October 1, 2013. For the purposes of this table, the duration in days for the first two CRs is considered to have ended on October 17, 2013. The third CR is considered to have begun on October 1, 2013, and expired on January 15, 2014. For further information on the FY2014 funding gap and congressional action on associated CRs, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by Jessica Tollestrup. Author Contact Information Jessica Tollestrup Analyst on Congress and the Legislative Process jtollestrup@crs.loc.gov, 7-0941 Acknowledgments This report incorporates some historical data and other information originally compiled and authored by Robert Keith, formerly a specialist in American National Government, and Sandy Streeter, formerly an analyst on Congress and the Legislative Process. The listed author is available to respond to inquiries on the subject. Lara Chausow assisted with the most recent update of this report. c11173008 Congressional Research Service 2931