.
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
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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.
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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
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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.
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“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.
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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.
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(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.
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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
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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.
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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
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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).
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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.
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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.
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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.
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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...)
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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.
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.
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.
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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.
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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
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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.
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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.
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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
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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).
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.
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.
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.
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.
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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.
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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.
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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.
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Congressional Research Service
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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.
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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.
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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
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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
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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
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Public
Law
Number
Congressional Research Service
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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
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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
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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
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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.
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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
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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
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.
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
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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.
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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
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.
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.
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