Enactment of Appropriations Measures During Lame Duck Sessions

Changes from October 21, 2020 to November 8, 2022

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The Enactment of Appropriations Measures
~~October 21, 2020~~November 8, 2022
During Lame Duck Sessions
~~Kevin P. McNellis~~
~~Twelve~~Drew C. Aherne Thirteen of the past of the past 1314 Congresses, covering the 103rd Congress through the Congresses, covering the 103rd Congress through the ~~115th~~116th Congress, have Congress, have
Analyst on Congress and Analyst on Congress and
concluded with a concluded with a post-election, or “lame ducklame duck,” session. (No such session occurred in 1996, session. (No such session occurred in 1996, ~~during the 104th~~
the Legislative Process the Legislative Process
during the 104th Congress.) Under contemporary conditions, any meeting of Congress that occurs Congress.) Under contemporary conditions, any meeting of Congress that occurs ~~between a~~

between a congressional election in November and the following January 3 is a lame duck session. The congressional election in November and the following January 3 is a lame duck session. The
significant characteristic of a lame duck session is that its participants are the sitting significant characteristic of a lame duck session is that its participants are the sitting ~~Members of~~

Members of the existing Congress, not those who will be entitled to sit in the new Congress. the existing Congress, not those who will be entitled to sit in the new Congress.
The enactment of appropriations measures has been an element of most of these lame duck sessions. Although no regular or The enactment of appropriations measures has been an element of most of these lame duck sessions. Although no regular or
continuing appropriations measures were enacted during lame duck sessions held in 1994, 1998, 2008, and 2012, a total of continuing appropriations measures were enacted during lame duck sessions held in 1994, 1998, 2008, and 2012, a total of 2537
regular and regular and 1923 continuing appropriations measures were enacted during the continuing appropriations measures were enacted during the ~~eight~~nine other lame duck sessions held in 2000, other lame duck sessions held in 2000,
2002, 2004,2002, 2004, 2006, 2010, 2014, 2016,2006, 2010, 2014, 2016, ~~and 2018~~ 2018, and 2020. .
Although some (and occasionally all) of the regular appropriations bills for a fiscal year may be enacted before the fiscal Although some (and occasionally all) of the regular appropriations bills for a fiscal year may be enacted before the fiscal ~~y ear~~
~~begins, in recent decades it has been common that~~year begins, it has been common in recent decades for Congress to enact most or all of the regular appropriations bills most or all of the regular appropriations bills ~~are enacted~~ after the start of after the start of
the fiscal year. In the past, this has triggered the necessity for continuing resolutions (CRs) to extend funding until the annual the fiscal year. In the past, this has triggered the necessity for continuing resolutions (CRs) to extend funding until the annual
appropriations acts have been enacted and led to the consideration of regular appropriations during the last quarter of the appropriations acts have been enacted and led to the consideration of regular appropriations during the last quarter of the
calendar year or the following session. calendar year or the following session.
A lame duck session occurs during the period following Election Day A lame duck session occurs during the period following Election Day —which is the Tuesday after the first Monday in —which is the Tuesday after the first Monday in
November of each even-numbered year—and before the convening of a new Congress about two months later in early November of each even-numbered year—and before the convening of a new Congress about two months later in early
January. Several factors may contribute to the occurrence of lame duck sessions, including the need to deal with unfinished January. Several factors may contribute to the occurrence of lame duck sessions, including the need to deal with unfinished
appropriations or other budgetary matters. appropriations or other budgetary matters.
This report provides information on the enactment of annual This report provides information on the enactment of annual ~~appropriatio ns~~appropriations acts and CRs in the years that lame duck sessions acts and CRs in the years that lame duck sessions
occurred between 1994 and occurred between 1994 and ~~2018~~2020 (FY1995, (FY1995, FY1999,FY1999, FY2001,FY2001, FY2003,FY2003, FY2005,FY2005, FY2007,FY2007, FY2009,FY2009, FY2011,FY2011, FY2013, FY2013,
FY2015,FY2015, FY2017,FY2017, ~~and FY2019).~~ FY2019, and FY2021). Lame duck sessions have in some instances afforded Congress an opportunity to complete Lame duck sessions have in some instances afforded Congress an opportunity to complete
action on regular appropriations for a fiscal year. In other instances, action on regular appropriations for a fiscal year. In other instances, ~~lame duck sessions played little or no role in this regard,~~
asCongress completed action on regular appropriations action on regular appropriations ~~was completed well~~either before or after a lame duck session. In total, 51 of the before or after a lame duck session. In total, 51 of the ~~148~~160 regular regular
appropriations acts during this period were enacted before the beginning of the applicable lame duck session, appropriations acts during this period were enacted before the beginning of the applicable lame duck session, 2537 were enacted were enacted
during a lame duck session, and 72 were enacted during a lame duck session, and 72 were enacted ~~afterward~~by the new Congress. .
Continuing appropriations measures were also an important element in most, but not all, of the lame duck sessions that Continuing appropriations measures were also an important element in most, but not all, of the lame duck sessions that
occurred between calendar years 1994 and occurred between calendar years 1994 and ~~2018~~2020. In total, . In total, ~~33 of the 64~~34 of 69 CRs were enacted before the beginning of the CRs were enacted before the beginning of the
applicable lame duck session, applicable lame duck session, 1923 were enacted during the lame duck session, and 12 were enacted were enacted during the lame duck session, and 12 were enacted ~~afterward~~by the new Congress. .
The report will be updated as developments warrant. The report will be updated as developments warrant.

Congressional Research Service Congressional Research Service

The Enactment of Appropriations Measures During Lame Duck Sessions

~~The~~he activities of most federal agencies are at least activities of most federal agencies are at least ~~partial y~~partially funded by means of annual funded by means of annual
appropriations acts. These appropriations are appropriations acts. These appropriations are ~~typical y~~typically provided in one or more of the provided in one or more of the T regular regular
appropriations appropriations ~~bil s~~bills that are enacted each fiscal year. Although some (and that are enacted each fiscal year. Although some (and ~~occasional y al~~ occasionally all) of the ) of the
regular appropriations regular appropriations ~~bil s~~bills may be enacted before the fiscal year begins, in recent decades it has may be enacted before the fiscal year begins, in recent decades it has
been common for most—if not been common for most—if not al all—of the regular appropriations —of the regular appropriations ~~bil s~~bills to be enacted after the start to be enacted after the start
of the fiscal year.1 In many recent instances the consideration of regular appropriations of the fiscal year.1 In many recent instances the consideration of regular appropriations ~~bil s~~bills has has
carried over to the following session of Congress. When action on the regular appropriations acts carried over to the following session of Congress. When action on the regular appropriations acts
is delayed beyond the start of the fiscal year, Congress may use one or more continuing is delayed beyond the start of the fiscal year, Congress may use one or more continuing
appropriations acts (commonly known as appropriations acts (commonly known as continuing resolutions or CRs) to provide or CRs) to provide ~~stop-gap~~
interim funding.funding.
~~Twelve~~ Thirteen of the past of the past 1314 Congresses, covering the 103rd Congress through the Congresses, covering the 103rd Congress through the ~~115th~~116th Congress, have Congress, have
concluded with a concluded with a post-election, or “lame ducklame duck,” session.2 The enactment of appropriations measures has been an session.2 The enactment of appropriations measures has been an
~~important element of~~important consideration during most of these sessions. most of these sessions.
This report provides information on the enactment of regular and continuing appropriations This report provides information on the enactment of regular and continuing appropriations
measures in connection with lame duck sessions occurring between 1994 and measures in connection with lame duck sessions occurring between 1994 and ~~2018~~2020. .
Background
A lame duck session occurs during the period following Election Day, which is the Tuesday after A lame duck session occurs during the period following Election Day, which is the Tuesday after
the first Monday in November of each even-numbered year, and before the convening of a new the first Monday in November of each even-numbered year, and before the convening of a new
Congress about two months later in early January. Under the Twentieth Amendment to the Congress about two months later in early January. Under the Twentieth Amendment to the
Constitution, Congress is required to convene at noon on January 3 following the election, unless Constitution, Congress is required to convene at noon on January 3 following the election, unless
by statute it designates a different day.3 In recent years, new Congresses have convened during by statute it designates a different day.3 In recent years, new Congresses have convened during
the first week of January in each odd-numbered year but not necessarily on January 3.4 As the first week of January in each odd-numbered year but not necessarily on January 3.4 As
pointed out in a CRS report: pointed out in a CRS report:
A “lame duck” session of Congress is one that takes place after the election for the next A “lame duck” session of Congress is one that takes place after the election for the next
CongressCongress ~~has been held but before the current Congress has reached the end~~ has been held but before the current Congress has reached the end of its of its
constitutional term. Since 1935, the constitutional term of a Congress has begun on January constitutional term. Since 1935, the constitutional term of a Congress has begun on January
3 of each odd-numbered year and has ended on January 3 of the next odd-numbered year. 3 of each odd-numbered year and has ended on January 3 of the next odd-numbered year.
AsAs ~~a result, any meeting of Congress that occurs between the congressional election in~~
a result, any meeting of Congress that occurs between the congressional election in November of an even-numbered year and the following January 3 is a lame duck session. November of an even-numbered year and the following January 3 is a lame duck session.
The significant characteristic of a lame duck session is that its participants are the sitting The significant characteristic of a lame duck session is that its participants are the sitting
MembersMembers ~~of the existing Congress, not those who will be entitled to sit in the new~~
~~Congress.5~~

~~1 Regular appropriations bills may be~~ of the existing Congress, not those who will be entitled to sit in the new Congress.5 1 Regular appropriations bills may be enacted as freestanding legislative vehicles or as part of an omnibus enacted as freestanding legislative vehicles or as part of an omnibus
appropriations act. For further information on the latter, see CRSappropriations act. For further information on the latter, see CRS Report RL32473, Report RL32473, ~~Om nibus~~Omnibus Appropriations Acts:
Overview of Recent Practices. In addition, annual appropriations are sometimes provided by a full-year continuing . In addition, annual appropriations are sometimes provided by a full-year continuing
resolution that funds (or “resolution that funds (or “ covers”) the activities that would normally be fundedcovers”) the activities that would normally be funded in a regularin a regular appropriations act. For appropriations act. For
further information, see CRSfurther information, see CRS Report Report ~~R42647~~R46595, , Continuing Resolutions: Overview of ~~Com ponents~~Components and Practices,
~~coordinated by Kate P. McClanahan.~~
. 2 No such 2 No such session occurred in 1996 during the 104th Congress. session occurred in 1996 during the 104th Congress.
3 Section 2 of the 3 Section 2 of the ~~T wentieth~~Twentieth Amendment states: “The Congress shall assemble Amendment states: “The Congress shall assemble at least once in every year, and such at least once in every year, and such
meeting shall beginmeeting shall begin at noon on the 3d day of January, unlessat noon on the 3d day of January, unless they shall by lawthey shall by law appoint a different day.” See appoint a different day.” See
“Constitution Annotated” on the CRS website“Constitution Annotated” on the CRS website at at https://constitution.congress.gov/browse/amendment-20/. https://constitution.congress.gov/browse/amendment-20/.
4 For more information, see CRS4 For more information, see CRS Report RS20722, Report RS20722, The First Day of a New Congress: A Guide to Proceedings on the
Senate Floor. .
5 CRS 5 CRS Report R45154, Report R45154, Lame Duck Sessions of Congress, 1935-2018 (74th-115th Congresses). .
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Several factors may contribute to the occurrence of lame duck sessions, including the need to deal Several factors may contribute to the occurrence of lame duck sessions, including the need to deal
with unfinished business or urgent matters that have arisen suddenly. For example, lame duck with unfinished business or urgent matters that have arisen suddenly. For example, lame duck
sessions have been used for such matters as the consideration of authorization measures for the sessions have been used for such matters as the consideration of authorization measures for the
Department of Defense and Department of Defense and ~~intel igence~~intelligence activities, the finalization activities, the finalization of a measure establishing the of a measure establishing the
Department of Homeland Security (DHS), Department of Homeland Security (DHS), ~~and~~ the House impeachment proceedings against the House impeachment proceedings against
President President ~~Bil Clinton~~Bill Clinton, and the enactment of legislation in response to the COVID-19 pandemic. The consideration and enactment of legislative proposals, particularly . The consideration and enactment of legislative proposals, particularly
those with significant budgetary implications, is sometimes postponed until a lame duck session. those with significant budgetary implications, is sometimes postponed until a lame duck session.
For example, during the 2012 lame duck session, the American Taxpayer Relief Act of 2012 (P.L. For example, during the 2012 lame duck session, the American Taxpayer Relief Act of 2012 (P.L.
112-240), which addressed a number of fiscal policies, was enacted on January 2, 2013.6 In recent 112-240), which addressed a number of fiscal policies, was enacted on January 2, 2013.6 In recent
years, lame duck sessions have been used to bring action on regular appropriations years, lame duck sessions have been used to bring action on regular appropriations ~~bil s~~bills for a for a
fiscal year to a close. fiscal year to a close.
Twenty- Twenty-~~two~~three lame duck sessions occurred between 1935 and lame duck sessions occurred between 1935 and ~~2018~~2020.7 Ten of the .7 Ten of the 2223 lame duck lame duck
sessions occurred between 1935 and 1990, an average of one out of every three Congresses sessions occurred between 1935 and 1990, an average of one out of every three Congresses
during this period. The use of such sessionsduring this period. The use of such sessions~~, however,~~ has become more common in recent years, has become more common in recent years,
however, occurring about twice as frequently. The remaining occurring about twice as frequently. The remaining 1213 lame duck sessions—which occurred after lame duck sessions—which occurred after
the 1994, 1998, 2000, 2002, 2004, 2006, 2008, 2010, 2012, 2014, 2016, the 1994, 1998, 2000, 2002, 2004, 2006, 2008, 2010, 2012, 2014, 2016, ~~and 2018~~ 2018, and 2020 elections—elections—
covered a span of covered a span of 1314 Congresses. A Congresses. As Table 1 shows, lame duck sessions occurred during this shows, lame duck sessions occurred during this
period whether party control of the federal government was unified (i.e., the same party period whether party control of the federal government was unified (i.e., the same party
controlled the presidency and both chambers of Congress, as in 1994, 2004, 2006, 2010, and controlled the presidency and both chambers of Congress, as in 1994, 2004, 2006, 2010, and
2018) or divided. Further, lame duck sessions occurred in presidential election years (2000, 2004, 2018) or divided. Further, lame duck sessions occurred in presidential election years (2000, 2004,
2008, 2012, 2008, 2012, 2016, and 2020) as well as nonpresidential~~and 2016) as wel as non-presidential~~ election years. election years.
Overview of the Enactment of Appropriations
Measures Before, During, and After Lame Duck
Sessions
Between calendar years 1994 and Between calendar years 1994 and ~~2018~~2020, lame duck sessions have in some instances afforded , lame duck sessions have in some instances afforded
Congress an opportunity to complete action on regular appropriations for a fiscal year. In other Congress an opportunity to complete action on regular appropriations for a fiscal year. In other
instances, instances, ~~lame duck sessions played little or no role in this regard, as~~Congress completed action on regular action on regular
appropriations appropriations ~~was completed wel~~ either before or after a lame duck session. A total of before or after a lame duck session. A total of ~~148~~160 regular regular
appropriations acts were enacted (or covered by full-year CRs) for the fiscal years that coincided appropriations acts were enacted (or covered by full-year CRs) for the fiscal years that coincided
with lame duck sessions (with lame duck sessions (seesee Table 2). ).
In addition, a total of In addition, a total of 6469 continuing appropriations measures were enacted for the fiscal years that continuing appropriations measures were enacted for the fiscal years that
coincided with lame duck sessions during this same period (coincided with lame duck sessions during this same period (seesee Table 3). As was the case for the . As was the case for the
regular appropriations regular appropriations ~~bil s, the~~ bills, the enactment of continuing appropriations measures were an important continuing appropriations measures were an important ~~element in~~
consideration during some of the lame duck sessions. some of the lame duck sessions.

Further information with regard to the annual appropriations acts and CRs that were enacted before, during, and after each lame duck session is displayed in Table 1 and Table 2 and 6 For further information on the American 6 For further information on the American ~~T axpayer~~Taxpayer Relief Act of 2012, see CRS Relief Act of 2012, see CRS Report R42884, Report R42884, The “Fiscal Cliff”
and the ~~Am erican~~American Taxpayer Relief Act of 2012 . .
7 See 7 See ~~CRS~~ CRS Report R45154, Report R45154, Lame Duck Sessions of Congress, 1935-2018 (74th-115th Congresses). According to the . According to the
report, “The possibility of a lame duckreport, “The possibility of a lame duck session of Congresssession of Congress in the modern sense beganin the modern sense began with the ratification of the with the ratification of the
~~T wentieth~~Twentieth Amendment to the Constitution. Under this amendment, ratified in 1933, the terms of Members begin Amendment to the Constitution. Under this amendment, ratified in 1933, the terms of Members begin and and
end on January 3 of odd-numberedend on January 3 of odd-numbered years. Congressyears. Congress convenes in a regularconvenes in a regular session on January 3 of each year unlesssession on January 3 of each year unless it it
passespasses a lawa law changing the date. changing the date. ~~T hus, t he~~Thus, the 74th Congress (1935-1937) was the first to begin its first session 74th Congress (1935-1937) was the first to begin its first session and the terms and the terms
of its Members on the new date. Any meeting of Congressof its Members on the new date. Any meeting of Congress after a federal election day (in November of evenafter a federal election day (in November of even -numbered -numbered
years) but before the following January 3 isyears) but before the following January 3 is a lame ducka lame duck session.” session.”
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~~Further information with regard to the annual appropriations acts and CRs that were enacted~~
~~before, during, and after each lame duck session is displayed in Table 1 and Table 2 and~~
discussed in the report section discussed in the report section “Summary of Action on Appropriations Measures in Lame Duck
Sessions Held in 1994-~~2018.”~~2020.”
Table 1. Duration of Lame Duck Session and Party Control of Government:
1994-~~2018~~2020
Lame Duck Session
Party Control
Duration
~~(in calendar~~
days)Error! Reference source n
AdministrationError! R
~~Congress~~
~~Dates~~
~~ot found.~~
~~eference source not found.~~Congress Dates (in calendar days)a Administrationb
House
Senate
103rd 103rd
11/29-12/1 11/29-12/1
3 3
D D
D D
D D
1994 1994
(Clinton) (Clinton)
104th 104th
[none] [none]
— —
D D
R R
R R
(Clinton) (Clinton)
105th 105th
12/17-12/19 12/17-12/19
3 3
D D
R R
R R
1998 1998
(Clinton) (Clinton)
106th 106th
11/13-12/15 11/13-12/15
33 33
D D
R R
R R
2000 2000
(Clinton) (Clinton)
107th 107th
11/7-11/22 11/7-11/22
16 16
R R
R R
D D
2002 2002
(G. W. Bush) (G. W. Bush)
108th 108th
11/16-12/8 11/16-12/8
23 23
R R
R R
R R
2004 2004
(G. W. Bush) (G. W. Bush)
109th 109th
11/9-12/9 11/9-12/9
31 31
R R
R R
R R
~~2006Error! Reference s~~
2006c (G. W. Bush) (G. W. Bush)
~~ource not found.~~
110th 110th
11/ 11/~~192008~~19/2008- -
46 46
R R
D D
D D
1/3/2009 1/3/2009
(G. W. Bush) (G. W. Bush)
111th 111th
11/4-12/29 11/4-12/29
56 56
D D
D D
D D
2010 2010
(Obama) (Obama)
112th 112th
11/9/2012-1/3/2013 11/9/2012-1/3/2013
56 56
D D
R R
D D
(Obama) (Obama)
113th 113th
11/12/2014- 11/12/2014-
53 53
D D
R R
D D
1/3/2015 1/3/2015
(Obama) (Obama)
114th 114th
11/14/2016- 11/14/2016-
50 50
D D
R R
R R
1/2/2017 1/2/2017
(Obama) (Obama)
115th 115th
11/13/2018- 11/13/2018-
52 52
R R
R R
R R
1/3/2019 1/3/2019
(Trump (Trump) 116th 11/9/2020-1/3/2021 56 R D R (Trump) )
Sources: Prepared by CRS using data fromPrepared by CRS using data from the LIS/Congress.govthe LIS/Congress.gov and and CQ Guide to Congress, 6th ed., vol. II , 6th ed., vol. II
(Washington: CQ Press, 2008), p. 1306. (Washington: CQ Press, 2008), p. 1306.
a. a. Duration ~~refers~~ refers to the span of days from the first date to the last date that the House, the Senate, or both to the span of days from the first date to the last date that the House, the Senate, or both
were in session. were in session. This does not refer to the number of days that one or both chambers wereThis does not refer to the number of days that one or both chambers were in session in session
during that period. during that period.
b. b. D refers to the Democratic refers to the Democratic Party and Party and R refers refers to the Republican Party. to the Republican Party.
c. The House and Senate adjourned earlyc. The House and Senate adjourned early in the morning of Decemberin the morning of December 9 (before 5:00 a.m.). 9 (before 5:00 a.m.).
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Regular Appropriations Acts
The variation in the incidence of lame duck sessions and the enactment of regular appropriations The variation in the incidence of lame duck sessions and the enactment of regular appropriations
~~bil s~~bills is shown is shown inin Table 2. There There ~~have~~has been considerable been considerable ~~differences~~variance in the degree to which regular in the degree to which regular
appropriations have been completed before, during, or after the 13 most recent lame duck appropriations have been completed before, during, or after the 13 most recent lame duck
sessions held since 1994. The count of regular appropriations acts sessions held since 1994. The count of regular appropriations acts inin Table 2 includes those that includes those that
were enacted in standalone vehicles or omnibus vehicles or covered by full-year CRs. During the were enacted in standalone vehicles or omnibus vehicles or covered by full-year CRs. During the
109th Congress (2005-2006)109th Congress (2005-2006), the number of regular appropriations acts was reduced from 13 to 11 the number of regular appropriations acts was reduced from 13 to 11
due to the reorganization of the House and Senate Appropriations Committees.8 At the beginning due to the reorganization of the House and Senate Appropriations Committees.8 At the beginning
of the 110th Congress, a further reorganization of the appropriations subcommittees took effect, of the 110th Congress, a further reorganization of the appropriations subcommittees took effect,
which resulted in an increase in the number of annual appropriations acts to 12.which resulted in an increase in the number of annual appropriations acts to 12.9
In total, 51 of the In total, 51 of the ~~148~~160 regular appropriations acts during this period were enacted before the regular appropriations acts during this period were enacted before the
beginning of the applicable lame duck session, beginning of the applicable lame duck session, 2537 were enacted during a lame duck session, and were enacted during a lame duck session, and
72 were enacted 72 were enacted ~~afterward.10~~by the new Congress.9
Table 2. Enactment of Regular Appropriations Acts into Law Before, During, and
After Lame Duck Sessions: 1994-~~2018~~2020
Number of Regular ~~Appropriations~~ Appropriations Acts
Enacted:
Before
During
After
Calendar
Lame Duck
Lame Duck
Lame Duck
Year
Session
Session
Session
Total
1994 1994
13 13
0 0
0 0
13 13
1998 1998
13 13
0 0
0 0
13 13
2000 2000
8 8
5 5
0 0
13 13
2002 2002
2 2
0 0
11 11
13 13
2004 2004
4 4
9 9
0 0
13 13
2006 2006
2 2
0 0
9 9
11 11
2008 2008
3 3
0 0
9 9
12 12
2010 2010
0 0
0 0
12 12
12 12
2012 2012
0 0
0 0
12 12
12 12
2014 2014
0 0
11 11
1 1
12 12
2016 2016
1 1
0 0
11 11
12 12
2018
5
0
7
12 2020 0 12 0 12
Total
51
2537
72
~~148~~

160 8 Although the two chambers differed8 Although the two chambers differed with respect to both the organization and number of appropriations with respect to both the organization and number of appropriations
subcommittees and the initial consideration of appropriations legislationsubcommittees and the initial consideration of appropriations legislation , ultimately 11 appropriations acts were agreed , ultimately 11 appropriations acts were agreed
to and enacted into law. Seeto and enacted into law. See ~~CRS~~ CRS Report RL31572, Report RL31572, Appropriations Subcommittee Structure: History of Changes from
1920 to 2021, by James V. Saturno. 9~~1920 to 2019~~.
~~9 See CRS Report RL31572, Appropriations Subcommittee Structure: History of Changes from 1920 to 2019 .~~
10 In 2000, the House and Senate completed action on five regular appropriations acts for FY2001 during the lame In 2000, the House and Senate completed action on five regular appropriations acts for FY2001 during the lame duck duck
session, but four of them were signedsession, but four of them were signed into lawinto law on December 21, six dayson December 21, six days ~~aft er~~ after the session had ended. the session had ended. ~~T his~~ This delay in delay in
enactment was dueenactment was due not to congressional inaction but to a delaynot to congressional inaction but to a delay of the signing of the acts by the President.of the signing of the acts by the President. For purposes For purposes
of this reportof this report , all five acts are regarded, all five acts are regarded as having been enacted duringas having been enacted during the lame duckthe lame duck session. session.
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Source: Prepared by CRS.
Source: Prepared by CRS.
Note: Four of the five regular appropriations acts for FY2001 considered during the lame duck session in 2000
~~were signed into law six days after the session ended but are considered for purposes of this report as having~~
~~been enacted during the lame duck session (see footnote 10).~~
No Enactment of Regular Appropriations Acts During Lame Duck Sessions
No appropriations acts were enacted No appropriations acts were enacted ~~during the~~in nine of the 13 lame duck sessions lame duck sessions ~~in 1994, 1998, 2008, and~~
~~2012. In 1994, al of the 13 regular appropriations bil s for FY1995 were enacted before the~~
~~beginning of the fiscal year. In 1998, one of the FY1999 regular appropriations bil s was enacted~~
~~before the start of the fiscal year, and the remaining 12 bil s were enacted by October 21, nearly~~
~~two months before the lame duck session began on December 17. In 2008, work on three out of~~
~~the 12 regular appropriations acts for FY2009 was completed before the end of September. At that~~
~~time, a CR was enacted that provided funding for the nine remaining acts through early March of~~
~~the following year. Those nine acts were not considered until the beginning of the 111th Congress,~~
~~when they were combined into an omnibus appropriations measure and enacted on March 11,~~
~~2009. Similarly, in 2012, a CR was enacted prior to the beginning of the fiscal year that provided~~
~~funding through March 27, 2013. Annual appropriations for FY2013 were later enacted after the~~
~~beginning of the 113th Congress on March 26, 2013, in a consolidated measure that contained five~~
~~regular appropriations acts and full-year CR that covered the seven remaining regular~~
~~appropriations acts~~since 1994 (1994, 1998, 2002, 2006, 2008, 2010, 2012, 2016, and 2018). In 1994 and 1998, all regular appropriations acts for FY1995 and FY1999, respectively, had been enacted prior to the beginning of the lame duck sessions in those years (November 29, 1994, and December 17, 1998, respectively). In other years (2002, 2006, 2008, 2016, and 2018), only some of the regular appropriations acts were enacted prior to the beginning of the lame duck sessions. In each of these years, no further action on the regular appropriations bills occurred during the lame duck session. In two lame duck sessions since 1994 (2010 and 2012), none of the regular appropriations bills were enacted either prior to or during the lame duck session, leaving the enactment of all 12 appropriations bills for FY2011 and FY2013 for the next Congresses. .
Enactment of Regular Appropriations Acts During Lame Duck Sessions
The enactment of regular appropriations The enactment of regular appropriations ~~bil s~~bills was an important element in was an important element in ~~three~~four lame duck lame duck
sessionssessions~~: 2000, 2004, and 2014~~ since 1994 (2000, 2004, 2014, and 2020). In 2000, eight regular appropriations . In 2000, eight regular appropriations ~~bil s~~ bills were enacted before were enacted before
the lame duck session, the lame duck session, ~~but~~and the remaining five were enacted during (or immediately after) the the remaining five were enacted during (or immediately after) the
session.session.10 In 2004, four ~~In 2000, four out of the five~~ regular appropriations regular appropriations ~~acts were passed by both the House~~
~~and Senate during the lame duck session, but those acts were not signed into law by the President~~
~~until after the lame duck session. In 2004, four regular appropriations bil s were enacted before~~
~~the lame duck session, but the remaining nine were enacted during the session. Most recently, in~~
~~2014,~~bills were enacted before the lame duck session, while Congress enacted the remaining nine during the session. Congress had enacted none of the regular appropriations acts prior to the lame duck sessions in 2014 and 2020. In 2014, Congress enacted a consolidated measure containing 11 of the regular appropriations a consolidated measure containing 11 of the regular appropriations acts for FY2015~~acts for that fiscal year~~
~~was enacted~~ during the lame duck session during the lame duck session~~, with the~~. The remaining regular remaining regular ~~bil~~ bill—for DHS——for DHS—~~being~~
~~enacted afterward by the new~~was not enacted until the next Congress on March 4, 2015. Most recently, in 2020, Congress enacted a consolidated measure containing all 12 of the regular appropriations acts for FY2021 during the lame duck session on December 27, 2020. Enactment of Regular Appropriations Acts After Lame Duck Sessions Consideration of the regular appropriations acts for the applicable fiscal year has continued beyond the lame duck session on eight occasions since 1994 (2002, 2006, 2008, 2010, 2012, 2014, 2016, and 2018) ~~Congress on March 4, 2015.~~
~~Enactment of Regular Appropriations Acts After Lame Duck Sessions~~
~~Different patterns prevailed in the other five lame duck sessions held in 2002, 2006, 2010, 2016,~~
~~and 2018, where action on al regular appropriations acts was not completed until after the session~~
~~in any of these instances~~. .
In 2002 and 2006, two of the regular appropriations In 2002 and 2006, two of the regular appropriations ~~bil s~~bills (for FY2003 and FY2007, respectively) (for FY2003 and FY2007, respectively)
had been enacted before the lame duck session began, but final action on the remaining acts was had been enacted before the lame duck session began, but final action on the remaining acts was
not completed until February during the following not completed until February during the following ~~session. The remaining 11 regular~~
~~appropriations acts for FY2003 were incorporated into an omnibus appropriations measure, which~~
~~was enacted on February 20, 2003, during the following session. Full-year funding for the nine~~
~~remaining FY2007 regular appropriations acts was provided by the new Congress through a full-~~
~~year CR, which was enacted on February 15, 2007.~~
~~For 2010, no regular appropriations bil s~~Congress. Consideration of appropriations bills for FY2009 followed a similar pattern in the 2008 lame duck session, with three bills enacted before the session and the remaining nine enacted during the next Congress in March 2009. In 2010 and 2012, no regular appropriations bills had been enacted before the start of the lame duck had been enacted before the start of the lame duck
session, and annual appropriations were ultimately provided in session, and annual appropriations were ultimately provided in ~~a consolidated measure that was~~
consolidated measures enacted by enacted by the next Congress. As mentioned above, 11 of the 12 appropriations bills for FY2015 were enacted during the 2014 lame duck session, leaving the DHS bill to be enacted during the next Congress. For 2016, Congress enacted one regular appropriations bill before the lame duck session began. Funding for the other 11 appropriations bills~~the next Congress on April 15, 2011. This measure contained one regular~~
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~~link to page 10~~ ~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

~~appropriations bil and funded the programs and activities in the 11 remaining appropriations bil s~~
~~through a full-year CR.~~
~~For 2016, one regular appropriations bil was enacted before the lame duck session began.~~
~~Funding for the other 11 appropriations bil s~~ was provided in a CR that expired during the lame was provided in a CR that expired during the lame
duck session. Upon the CR’s expiration, a second CR was enacted to provide funding through duck session. Upon the CR’s expiration, a second CR was enacted to provide funding through
10 Congress passed four out of the five remaining regular appropriations acts during the lame duck session, but the President did not sign them into law until after the session (see footnote 9). Congressional Research Service 5 link to page 10 The Enactment of Appropriations Measures During Lame Duck Sessions April. Ultimately, ~~April. Ultimately,~~ the remaining 11 appropriations acts were consolidated into an omnibus the remaining 11 appropriations acts were consolidated into an omnibus
appropriations measure that was enactedappropriations measure that was enacted ~~in May 2017~~ by the next Congress by the next Congress in May 2017. .
In 2018, five of the regular appropriations acts were incorporated into two omnibus In 2018, five of the regular appropriations acts were incorporated into two omnibus
appropriations measures that were enacted before the lame duck session began. appropriations measures that were enacted before the lame duck session began. ~~This was the most~~
~~annual appropriations bil s enacted before a lame duck session since 2008.~~ Funding was provided Funding was provided
for the agencies and activities covered by the seven remaining regular appropriations for the agencies and activities covered by the seven remaining regular appropriations ~~bil s~~
bills through three CRs, one enacted before the lame duck session that expired on December 7 and through three CRs, one enacted before the lame duck session that expired on December 7 and
another enacted during the lame duck session that expired on December 21. Agreement on a third another enacted during the lame duck session that expired on December 21. Agreement on a third
CR, however, was not reached until January 25, which resulted in a funding gap of 34 days.11 CR, however, was not reached until January 25, which resulted in a funding gap of 34 days.11
~~Final~~Congress completed final action on the remaining seven regular appropriations acts action on the remaining seven regular appropriations acts ~~w as completed in~~ in February during February during
~~the next session, when those acts were consolidated into~~the next Congress in a third omnibus appropriations measure. a third omnibus appropriations measure.
Continuing Resolutions
Continuing appropriations legislationContinuing appropriations legislation has been an integral component of the annual has been an integral component of the annual
appropriations process for decades. When action on one or more of the regular appropriations appropriations process for decades. When action on one or more of the regular appropriations
~~bil s~~bills for a fiscal year is not completed until after the fiscal year has begun, CRs are for a fiscal year is not completed until after the fiscal year has begun, CRs are ~~usual y~~usually used used
to provide to provide ~~stop-gap~~interim funding, thereby avoiding disruption in agency operations. Two funding, thereby avoiding disruption in agency operations. Two
considerations that often arise under these circumstances are the duration of time for which considerations that often arise under these circumstances are the duration of time for which
funding funding ~~wil~~ will be provided by the CR and how to reach agreement on the pending appropriations be provided by the CR and how to reach agreement on the pending appropriations
measures for the new fiscal year.12 measures for the new fiscal year.12
CRs may have a relatively CRs may have a relatively short duration in the expectation that action on the regular short duration in the expectation that action on the regular
appropriations acts appropriations acts ~~wil~~ will be concluded within several days or weeks. In this case, multiple short-be concluded within several days or weeks. In this case, multiple short-
term CRs have been used to “buy time” for ongoing negotiations on regular appropriations acts term CRs have been used to “buy time” for ongoing negotiations on regular appropriations acts
while maintaining incentives to complete the negotiations. Alternatively, CRs may have a longer while maintaining incentives to complete the negotiations. Alternatively, CRs may have a longer
duration to postpone final action on appropriations decisions until after elections or into the duration to postpone final action on appropriations decisions until after elections or into the
beginning of the next congressional session. beginning of the next congressional session. ~~Final y~~Finally, a CR may provide funding for the remainder , a CR may provide funding for the remainder
of the fiscal year, as was the case in FY2007, FY2011, and FY2013. of the fiscal year, as was the case in FY2007, FY2011, and FY2013.
There has been considerable variation in the degree to which CRs have been used to provide There has been considerable variation in the degree to which CRs have been used to provide ~~stop-~~
~~gap~~interim funding during the funding during the 1113 most recent lame duck sessions since 1994 most recent lame duck sessions since 1994 (see ~~(se~~e Table 3). . A total of A total of 64
69 CRs were enacted for the fiscal years that coincided with lame duck sessions during this period. CRs were enacted for the fiscal years that coincided with lame duck sessions during this period.
In total, In total, 3334 of the of the 6469 CRs were enacted before the beginning of a lame duck session, CRs were enacted before the beginning of a lame duck session, ~~19 were~~
23 were enacted during the lame duck session, and 12 were enacted enacted during the lame duck session, and 12 were enacted ~~afterward.13~~

~~11 T he last previous instance in which a funding gap occurred during a lame duck session was 1982, when there was a~~
~~two-day funding gap.~~
~~12 For a more detailed discussion of this topic, see CRS Report R42647,~~ ~~Continuing Resolutions: Overview of~~
~~Com ponents and Practices, coordinated by Kate P. McClanahan.~~
~~13 In 2002, the CR for FY2003 considered during the lame duck session was enacted on November 23, the day after the~~
~~session ended. For purposes of this report, the CR is considered to have been enacted during the lame duck session~~
~~because this delay was not due to congressional action .~~
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

afterwards.13 No Enactment of Continuing Resolutions During Lame Duck Sessions
In 1994, when In 1994, when al Congress enacted all of the regular appropriations of the regular appropriations ~~bil s (for FY1995) were enacted~~bills for FY1995 prior to the prior to the
beginning of the fiscal year, no CRs were needed. In 1998, beginning of the fiscal year, no CRs were needed. In 1998, al Congress enacted all of the regular appropriations of the regular appropriations ~~bil s~~
~~(for FY1999) were enacted~~bills for FY1999 before the lame duck session began (but not before the beginning of before the lame duck session began (but not before the beginning of
the fiscal year). Six CRs were enacted to provide funding through the first three weeks of the the fiscal year). Six CRs were enacted to provide funding through the first three weeks of the
fiscal year, but none were needed afterward. In 2008, the CR that was enacted before the fiscal fiscal year, but none were needed afterward. In 2008, the CR that was enacted before the fiscal
year began also contained three regular appropriations acts. That CR extended funding for the year began also contained three regular appropriations acts. That CR extended funding for the
remaining appropriations acts through March 6, 2009, remaining appropriations acts through March 6, 2009, ~~when~~and action on annual appropriations was 11 For more information on funding gaps, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview. 12 For a more detailed discussion of this topic, see CRS Report R46595, Continuing Resolutions: Overview of Components and Practices. 13 In 2002, the CR for FY2003 considered during the lame duck session was enacted on November 23, the day after the session ended. For purposes of this report, the CR is considered to have been enacted during the lame duck session because this delay was not due to congressional action. Congressional Research Service 6 The Enactment of Appropriations Measures During Lame Duck Sessions completed during the following Congress. Similarly, a ~~action on annual appropriations was~~
~~completed in the following session. Similarly, a long-term~~ CR enacted before the 2012 lame duck CR enacted before the 2012 lame duck
session provided funding for the first six months of FY2013. Action on annual appropriations for session provided funding for the first six months of FY2013. Action on annual appropriations for
FY2013 was completed during the following FY2013 was completed during the following ~~session of~~ Congress on March 28, 2013. Congress on March 28, 2013.
Table 3. Enactment of Continuing Appropriations Legislation into Law Before,
During, and After Lame Duck Sessions: 1994-~~2018~~2020
Number of Continuing ~~Appropriations~~ Appropriations Acts
Enacted:
Before
During
After
Calendar
Lame Duck
Lame Duck
Lame Duck
Total
Year
Session
Session
Session
1994 1994
0 0
0 0
0 0
0 0
1998 1998
6 6
0 0
0 0
6 6
2000 2000
15 15
6 6
0 0
21 21
2002 2002
4 4
1 1
3 3
8 8
2004 2004
1 1
2 2
0 0
3 3
2006 2006
1 1
2 2
1 1
4 4
2008 2008
1 1
0 0
0 0
1 1
2010 2010
1 1
3 3
4 4
8 8
2012 2012
1 1
0 0
1 1
2 2
2014 2014
1 1
3 3
1 1
5 5
2016 2016
1 1
1 1
1 1
3 3
2018
1
1
1
31 1 1 3 2020 1 4 0 5
Total
3334
1923
12
6469 Source: Prepared by CRS. Enactment of Continuing Resolutions During Lame Duck Sessions Nine lame duck sessions since 1994 have
Source: Prepared by CRS.
Notes: In 2002, the continuing appropriations act for FY2003 considered during the lame duck session was
~~enacted on November 23, the day after the session ended. For purposes of this report, the CR is considered to~~
~~have been enacted during the lame duck session (see footnote 13).~~
~~Enactment of Continuing Resolutions During Lame Duck Sessions~~
~~Circumstances were different with respect to the other eight lame duck sessions, which al~~
involved the enactment of one or more CRs. In 2000, six CRs for FY2001 were enacted during involved the enactment of one or more CRs. In 2000, six CRs for FY2001 were enacted during
the lame duck session. (Fifteen had been enacted before the session began.) the lame duck session. (Fifteen had been enacted before the session began.) ~~In 2004, two CRs for~~
~~FY2005 were enacted during the lame duck session~~Three CRs were enacted for FY2011 and FY2015 during the lame duck sessions in 2010 and 2014, respectively. (One had been enacted before . (One had been enacted before each of the sessions began.) Most recently in 2020, four~~the session~~
~~began.) In each year, one or more~~ CRs were enacted CRs were enacted ~~before~~for FY2021 during the lame duck session. (One had been enacted before the session began.) Additionally, during the lame duck sessions in 2002, 2004, 2006, 2016, and 2018, either one or two CRs for the applicable fiscal year were enacted to allow ~~the lame duck session ended that~~
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

~~extended stop-gap funding for a period of less than one week, al owing sufficient time for the~~
sufficient time for the remaining regular appropriations acts to be enacted. remaining regular appropriations acts to be enacted.
Enactment of Continuing Resolutions Both During and After Lame Duck
Sessions
In the case of six lame duck sessions— In the case of six lame duck sessions—~~held~~ in 2002, 2006, 2010, 2014, 2016, and 2018—CRs in 2002, 2006, 2010, 2014, 2016, and 2018—CRs
were were ~~needed to provide stop-gap funding during the sessions and~~used to provide interim funding that extended into the following Congress. In into the following Congress. In
2002, one CR for FY2003 was enacted during the lame duck session. (Four had been enacted 2002, one CR for FY2003 was enacted during the lame duck session. (Four had been enacted
before the session began.) Three additional CRs were enacted early in the 2003 session before the session began.) Three additional CRs were enacted early in the 2003 session ~~before~~of the next Congress before Congressional Research Service 7 The Enactment of Appropriations Measures During Lame Duck Sessions
action on appropriations was ultimately concluded with the enactment of an omnibus measure on action on appropriations was ultimately concluded with the enactment of an omnibus measure on
February 20February 20 ~~by the next Congress~~. In 2006, two CRs for FY2007 were enacted during the lame . In 2006, two CRs for FY2007 were enacted during the lame
duck session. (One had been enacted before the session began.) Action was concluded early in the duck session. (One had been enacted before the session began.) Action was concluded early in the
2007 session 2007 session of the next Congress with the enactment of a full-year CR on February 15. In 2010, three CRs were with the enactment of a full-year CR on February 15. In 2010, three CRs were
enacted during the lame duck session. (One had been enacted before the session began.) Four enacted during the lame duck session. (One had been enacted before the session began.) Four
additional CRs were additional CRs were ~~needed~~used after the 2011 session of after the 2011 session of the next Congress had begunCongress had begun ~~until action on~~
~~appropriations was completed through~~, and action on FY2011 appropriations concluded with the enactment of a consolidated measure on April 15, the enactment of a consolidated measure on April 15,
2011. 2011.
During the 2014 lame duck session, two CRs were enacted to provide During the 2014 lame duck session, two CRs were enacted to provide ~~stop-gap~~interim funding funding ~~while~~before a a
consolidated measure was consolidated measure was ~~being completed~~enacted. Eleven of the appropriations acts for FY2015 were . Eleven of the appropriations acts for FY2015 were
enacted in that consolidated measure, along with a CR that provided enacted in that consolidated measure, along with a CR that provided ~~stop-gap~~interim appropriations for appropriations for
the remaining regular appropriations the remaining regular appropriations ~~bil~~ bill into the next Congress. Those into the next Congress. Those ~~stop-gap~~interim appropriations appropriations
were later extended by were later extended by ~~a further~~another CR until action on that final appropriations measure was CR until action on that final appropriations measure was
completed on March 4, 2015. completed on March 4, 2015.
For 2016, temporary funding for the 11 appropriations For 2016, temporary funding for the 11 appropriations ~~bil s~~bills that had not yet been enacted was that had not yet been enacted was
provided by a CR that expired during the lame duck session. Upon that CR’s expiration, a second provided by a CR that expired during the lame duck session. Upon that CR’s expiration, a second
CR was enacted to provide funding beyond the end of the lame duck session (through April 28), CR was enacted to provide funding beyond the end of the lame duck session (through April 28),
which was followed by one additional CR in the next Congress. The remaining 11 appropriations which was followed by one additional CR in the next Congress. The remaining 11 appropriations
acts were then consolidated into an omnibus appropriations measure that was enacted acts were then consolidated into an omnibus appropriations measure that was enacted inon May 5, May 5,
2017. 2017.
In 2018, temporary funding for the seven appropriations In 2018, temporary funding for the seven appropriations ~~bil s~~bills that had not yet been enacted was that had not yet been enacted was
provided by a CR that expired during the lame duck session on December 7.14 A second CR provided by a CR that expired during the lame duck session on December 7.14 A second CR ~~(P.L.~~
~~115-298)~~ was enacted, which provided funding for another two weeks, through December 21. was enacted, which provided funding for another two weeks, through December 21.
~~Additional~~ Additional continuing appropriations were considered in the House and Senate but not enacted. continuing appropriations were considered in the House and Senate but not enacted.
This resulted in a 34-day funding gap that concluded during the next session of Congress. This resulted in a 34-day funding gap that concluded during the next session of Congress. ~~After~~
~~the enactment of a third CR (P.L. 116-5)~~A third CR was enacted on January 25, 2019, on January 25, 2019, and a third omnibus appropriations a third omnibus appropriations
~~measure (P.L. 116-6) funded~~measure funding the remaining seven appropriations acts the remaining seven appropriations acts was enacted on February 15.15~~on February 15.15~~

~~14 T hat CR was included as a title in an omnibus appropriations act . See Division C of the FY2019 Consolidated~~
~~Defense, Labor-HHS-Education Appropriations Act, 2019 and Continuing Appropriations Act, 2019 ( P.L. 115-245).~~
~~15 For further information, see CRS Report R45906,~~ ~~Congressional Action on FY2019 Appropriations Measures: 115th~~
~~and 116th Congresses; and CRS Report RS20348, Federal Funding Gaps: A Brief Overview.~~
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

Summary of Action on Appropriations Measures in
Lame Duck Sessions Held in 1994-~~2018~~2020
A brief summary of action on regular appropriations and CRs A brief summary of action on regular appropriations and CRs ~~that were~~ enacted during each of enacted during each of
the the 1113 lame duck sessions that occurred during the period between 1994 and lame duck sessions that occurred during the period between 1994 and ~~2018~~2020 is provided is provided in
~~this section~~below. .
1994 and 1998 Lame Duck Sessions
In 1994, a lame duck session was held from November 29 to December 1. In 1994, a lame duck session was held from November 29 to December 1.
Al All 13 of the regular appropriations acts for FY1995 were enacted prior to the start of the fiscal 13 of the regular appropriations acts for FY1995 were enacted prior to the start of the fiscal
year on October 1, before the lame duck session began. year on October 1, before the lame duck session began. Al All were enacted separately. No CRs were were enacted separately. No CRs were
needed. needed.
~~For 1996, al~~ 14 That CR was included as a title in an omnibus appropriations act. See Division C of the FY2019 Consolidated Defense, Labor-HHS-Education Appropriations Act, 2019 and Continuing Appropriations Act, 2019 (P.L. 115-245). 15 For further information, see CRS Report R45906, Congressional Action on FY2019 Appropriations Measures: 115th and 116th Congresses; and CRS Report RS20348, Federal Funding Gaps: A Brief Overview. Congressional Research Service 8 The Enactment of Appropriations Measures During Lame Duck Sessions For 1996, all regular appropriations acts were completed prior to the beginning of the fiscal year, regular appropriations acts were completed prior to the beginning of the fiscal year,
and no lame duck session was held. and no lame duck session was held.
In 1998, a lame duck session was held on December 17-19. In 1998, a lame duck session was held on December 17-19.
Al All 13 of the regular appropriations acts for FY1999 were enacted prior to the lame duck 13 of the regular appropriations acts for FY1999 were enacted prior to the lame duck
session—five separately and eight in an omnibus measure, the FY1999 Omnibus Consolidated session—five separately and eight in an omnibus measure, the FY1999 Omnibus Consolidated
and Emergency Supplemental Appropriations Act (P.L. 105-277; October 21, 1998). Six CRs and Emergency Supplemental Appropriations Act (P.L. 105-277; October 21, 1998). Six CRs
were enacted to provide were enacted to provide ~~stop-gap~~interim funding from the start of the fiscal year on October 1 through funding from the start of the fiscal year on October 1 through
October 21. October 21.
Over the three days of the 1998 lame duck session, the House considered and passed a resolution Over the three days of the 1998 lame duck session, the House considered and passed a resolution
of impeachment against President of impeachment against President ~~Bil~~ Bill Clinton. The Senate was not in session. Clinton. The Senate was not in session.
2000 Lame Duck Session
In 2000, a lame duck session was held from November 13 to December 15. In 2000, a lame duck session was held from November 13 to December 15.
Eight of the 13 regular appropriations acts for FY2001 were enacted prior to the lame duck Eight of the 13 regular appropriations acts for FY2001 were enacted prior to the lame duck
session—six separately and two as part of an omnibus measure, the FY2001 VA-HUD session—six separately and two as part of an omnibus measure, the FY2001 VA-HUD
Appropriations Act (P.L. 106-377; October 27, 2000), which also included funding for the Appropriations Act (P.L. 106-377; October 27, 2000), which also included funding for the
FY2001 Energy-Water Development Appropriations Act. Fifteen CRs were also enacted before FY2001 Energy-Water Development Appropriations Act. Fifteen CRs were also enacted before
the lame duck session began. the lame duck session began.
The remaining five regular appropriations acts for FY2001 were considered and enacted during The remaining five regular appropriations acts for FY2001 were considered and enacted during
the lame duck session.16 An omnibus measure, the FY2001 Consolidated Appropriations Act (P.L. the lame duck session.16 An omnibus measure, the FY2001 Consolidated Appropriations Act (P.L.
106-554; December 21, 2000), covered the following three regular appropriations acts: (1) Labor-106-554; December 21, 2000), covered the following three regular appropriations acts: (1) Labor-
HHS-Education, (2) Legislative Branch, and (3) Treasury-Postal Service. The FY2001 District of HHS-Education, (2) Legislative Branch, and (3) Treasury-Postal Service. The FY2001 District of
Columbia Appropriations Act (P.L. 106-522; November 22, 2000) and the FY2001 Commerce-Columbia Appropriations Act (P.L. 106-522; November 22, 2000) and the FY2001 Commerce-
Justice-State Appropriations Act (P.L. 106-553; December 21, 2000) were enacted separately. Six Justice-State Appropriations Act (P.L. 106-553; December 21, 2000) were enacted separately. Six
~~CRs were also enacted during the lame duck session.~~

~~16 T he House and Senate completed action on five regular appropriations acts for FY2001 during the lame duck~~
~~session, but four of them were signed into law on December 21, 2000, six days after the session had ended. For~~
~~purposes of this report , all five acts are regarded as having been enacted during the lame duck session because this~~
~~delay was not due to congressional inaction.~~
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

CRs were also enacted during the lame duck session. 2002 Lame Duck Session
A lame duck session was held November 7-22, 2002.A lame duck session was held November 7-22, 2002.
Two of the regular appropriations acts for FY2003 were enacted before the lame duck session Two of the regular appropriations acts for FY2003 were enacted before the lame duck session
began—the FY2003 Defense Appropriations Act (P.L. 107-248) and the FY2003 Military began—the FY2003 Defense Appropriations Act (P.L. 107-248) and the FY2003 Military
Construction Appropriations Act (P.L. 107-249). They both became law on October 23, 2002. Construction Appropriations Act (P.L. 107-249). They both became law on October 23, 2002.
Four CRs for FY2003 were also enacted before the lame duck session began. Four CRs for FY2003 were also enacted before the lame duck session began.
One further CR for the fiscal year was considered and enacted during the lame duck session (P.L. One further CR for the fiscal year was considered and enacted during the lame duck session (P.L.
107-294; November 23, 2002)17 but no regular appropriations acts were considered during the 107-294; November 23, 2002)17 but no regular appropriations acts were considered during the
session. session.
Three more CRs were enacted early in the next Congress, and Three more CRs were enacted early in the next Congress, and al all of the remaining 11 regular of the remaining 11 regular
appropriations acts for FY2003 were enacted early in the next Congress as a single measure, the appropriations acts for FY2003 were enacted early in the next Congress as a single measure, the
16 The House and Senate completed action on five regular appropriations acts for FY2001 during the lame duck session, but four of them were signed into law on December 21, 2000, six days after the session had ended. For purposes of this report, all five acts are regarded as having been enacted during the lame duck session because this delay was not due to congressional inaction. 17 The CR was considered during the lame duck session but was enacted on November 23, the day after the session ended. For purposes of this report, the CR is considered to have been enacted during the lame duck session because this delay was not due to congressional inaction. Congressional Research Service 9 The Enactment of Appropriations Measures During Lame Duck Sessions FY2003 Consolidated Appropriations Resolution (P.L. 108-7; February 20, 2003), several weeks FY2003 Consolidated Appropriations Resolution (P.L. 108-7; February 20, 2003), several weeks
after the lame duck session had ended. after the lame duck session had ended.
2004 Lame Duck Session
The lame duck session for 2004 was held from November 16 to December 8. The lame duck session for 2004 was held from November 16 to December 8.
Four of the 13 regular appropriations acts for FY2005 were enacted separately before the lame Four of the 13 regular appropriations acts for FY2005 were enacted separately before the lame
duck session began (the Defense, District of Columbia, Homeland Security, and Military duck session began (the Defense, District of Columbia, Homeland Security, and Military
Construction Appropriations Acts). One CR was also enacted before the lame duck session began. Construction Appropriations Acts). One CR was also enacted before the lame duck session began.
The remaining nine regular appropriations acts for FY2005 were considered and enacted during The remaining nine regular appropriations acts for FY2005 were considered and enacted during
the lame duck session as part of an omnibus measure, the FY2005 Consolidated Appropriations the lame duck session as part of an omnibus measure, the FY2005 Consolidated Appropriations
Act (P.L. 108-447; December 8, 2004). Two further CRs for FY2005 were considered and Act (P.L. 108-447; December 8, 2004). Two further CRs for FY2005 were considered and
enacted during the lame duck session: P.L. 108-416 (November 21, 2004) and P.L. 108-434 enacted during the lame duck session: P.L. 108-416 (November 21, 2004) and P.L. 108-434
(December 3, 2004). (December 3, 2004).
2006 Lame Duck Session
The lame duck session for 2006 was held from November 13 to December 9. The lame duck session for 2006 was held from November 13 to December 9.
Two of the 11 regular appropriations acts for FY2007 were separately enacted before the lame Two of the 11 regular appropriations acts for FY2007 were separately enacted before the lame
duck session began. The FY2007 Defense Appropriations Act (P.L. 109-289) and the FY2007 duck session began. The FY2007 Defense Appropriations Act (P.L. 109-289) and the FY2007
Homeland Security Appropriations Act (P.L. 109-295) were signed into law on September 29 and Homeland Security Appropriations Act (P.L. 109-295) were signed into law on September 29 and
October 4, respectively. The nine other appropriations acts were extended through November 17 October 4, respectively. The nine other appropriations acts were extended through November 17
via a CR enacted on September 29 (P.L. 109-289). via a CR enacted on September 29 (P.L. 109-289).
Two additional CRs were passed during the lame duck session. P.L. 109-369 was enacted on Two additional CRs were passed during the lame duck session. P.L. 109-369 was enacted on
November 17 to provide appropriations through December 8. When it became apparent that November 17 to provide appropriations through December 8. When it became apparent that
action on regular appropriations would not be completed, P.L. 109-383 was enacted on December action on regular appropriations would not be completed, P.L. 109-383 was enacted on December
9 to provide appropriations through February 15, 2007. 9 to provide appropriations through February 15, 2007.
Action on the nine regular appropriations acts was completed during the following session of Action on the nine regular appropriations acts was completed during the following session of
Congress via a full-year CR (H.J.Res. 20) that was signed into law on February 15, 2007 (P.L. Congress via a full-year CR (H.J.Res. 20) that was signed into law on February 15, 2007 (P.L.
~~110-5).~~

~~17 T he CR was considered during the lame duck session but was enacted on November 23, the day after the session~~
~~ended. For purposes of this report , the CR is considered to have been enacted during the lame duck session because this~~
~~delay was not due to congressional inaction.~~
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

110-5). 2008 Lame Duck Session
The lame duck session for 2008 was held from November 19, 2008, to January 3, 2009. The lame duck session for 2008 was held from November 19, 2008, to January 3, 2009.
Three of the 12 regular appropriations acts for FY2009 (Defense, Homeland Security, and Three of the 12 regular appropriations acts for FY2009 (Defense, Homeland Security, and
MilitaryMilitary Construction/Veterans Affairs) were enacted before the lame duck session as part of the Construction/Veterans Affairs) were enacted before the lame duck session as part of the
Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, which became Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, which became
law on September 30 (P.L. 110-329). This CR extended funding for the nine remaining law on September 30 (P.L. 110-329). This CR extended funding for the nine remaining
appropriations acts through March 6, 2009. appropriations acts through March 6, 2009.
No action on appropriations was undertaken during the 2008 lame duck session. No action on appropriations was undertaken during the 2008 lame duck session.
The remaining appropriations acts were consolidated in the early days of the 111th Congress into The remaining appropriations acts were consolidated in the early days of the 111th Congress into
the FY2009 Omnibus Appropriations Act, which was signed by the President on March 11, 2009 the FY2009 Omnibus Appropriations Act, which was signed by the President on March 11, 2009
(P.L. 111-8). (P.L. 111-8).
2010 Lame Duck Session
The lame duck session for 2010 was held from November 4 to December 19. The lame duck session for 2010 was held from November 4 to December 19.
Congressional Research Service 10 The Enactment of Appropriations Measures During Lame Duck Sessions None of the 12 regular appropriations None of the 12 regular appropriations ~~bil s~~bills had been enacted by the pre-election recess, and only had been enacted by the pre-election recess, and only
two regular appropriations two regular appropriations ~~bil s~~bills for FY2011 (Military Construction/Veterans Affairs and for FY2011 (Military Construction/Veterans Affairs and
Transportation/Housing and Urban Development) had been passed by the House. A CR (P.L. 111-Transportation/Housing and Urban Development) had been passed by the House. A CR (P.L. 111-
242) was enacted on September 30 that extended budget authority through December 3. 242) was enacted on September 30 that extended budget authority through December 3.
None of the regular appropriations None of the regular appropriations ~~bil s~~bills was enacted during the 2010 lame duck session. Funding was enacted during the 2010 lame duck session. Funding
for FY2011 was further extended by three additional CRs (P.L. 111-290, enacted on December 4, for FY2011 was further extended by three additional CRs (P.L. 111-290, enacted on December 4,
2010; P.L. 111-317, enacted on December 18, 2010; P.L. 111-322, enacted on December 22, 2010; P.L. 111-317, enacted on December 18, 2010; P.L. 111-322, enacted on December 22,
2010) through March 4 of the next session. 2010) through March 4 of the next session.
In the first months of the 112th Congress, three additional CRs (P.L. 112-4, enacted on March 2, In the first months of the 112th Congress, three additional CRs (P.L. 112-4, enacted on March 2,
2011; P.L. 112-6, enacted on March 18, 2011; P.L. 112-8, enacted on April 9, 2011) provided 2011; P.L. 112-6, enacted on March 18, 2011; P.L. 112-8, enacted on April 9, 2011) provided
further further ~~stop-gap~~interim budget authority. FY2011 appropriations were ultimately provided in the FY2011 budget authority. FY2011 appropriations were ultimately provided in the FY2011
Department of Defense and Full-Year Continuing Appropriations Act (P.L. 112-10; April 15, Department of Defense and Full-Year Continuing Appropriations Act (P.L. 112-10; April 15,
2011). Division A contained the Department of Defense Appropriations Act. Funding for the 11 2011). Division A contained the Department of Defense Appropriations Act. Funding for the 11
remaining acts was provided in Division B through a full-year CR. remaining acts was provided in Division B through a full-year CR.
2012 Lame Duck Session
The lame duck session for 2012 was held from November 9, 2012, to January 3, 2013. The lame duck session for 2012 was held from November 9, 2012, to January 3, 2013.
None of the regular appropriations None of the regular appropriations ~~bil s~~bills had been enacted by the pre-election recess. Seven had been enacted by the pre-election recess. Seven ~~bil s~~bills
had been passed by the House. None had been passed by the Senate. Continuing appropriations had been passed by the House. None had been passed by the Senate. Continuing appropriations
through March 27, 2013, were provided by P.L. 112-175, which was enacted on September 28, through March 27, 2013, were provided by P.L. 112-175, which was enacted on September 28,
2012. 2012.
No regular appropriations acts or CRs were enacted during the lame duck session. No regular appropriations acts or CRs were enacted during the lame duck session.
Annual appropriations were provided by P.L. 113-6, the FY2013 Consolidated and Further Annual appropriations were provided by P.L. 113-6, the FY2013 Consolidated and Further
Continuing Appropriations Act, which was enacted on March 26, 2013, by the new Congress. Continuing Appropriations Act, which was enacted on March 26, 2013, by the new Congress.
Division F of the act, entitled “the Full-Year Continuing Appropriations Act, 2013,” provided Division F of the act, entitled “the Full-Year Continuing Appropriations Act, 2013,” provided
budget authority that covered seven regular appropriations budget authority that covered seven regular appropriations ~~bil s~~bills. The texts of the other five . The texts of the other five
regular FY2013 appropriations acts were contained in Divisions A-E of P.L. 113-6. regular FY2013 appropriations acts were contained in Divisions A-E of P.L. 113-6.
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

2014 Lame Duck Session
The lame duck session for 2014 was held from November 12, 2014, to January 3, 2015. The lame duck session for 2014 was held from November 12, 2014, to January 3, 2015.
Because none of the regular appropriations Because none of the regular appropriations ~~bil s~~ bills was enacted by the start of the fiscal year, a CR was enacted by the start of the fiscal year, a CR
was enacted before the lame duck session to provide temporary funding through December 11, was enacted before the lame duck session to provide temporary funding through December 11,
2014 (P.L. 113-164, September 19, 2014). 2014 (P.L. 113-164, September 19, 2014).
During the lame duck session, 11 of the 12 regular appropriations acts for FY2015 were enacted During the lame duck session, 11 of the 12 regular appropriations acts for FY2015 were enacted
on December 16, 2014, as part of the Consolidated and Further Continuing Appropriations Act, on December 16, 2014, as part of the Consolidated and Further Continuing Appropriations Act,
2015 (P.L. 113-235). That law also contained a CR that provided 2015 (P.L. 113-235). That law also contained a CR that provided ~~stop-gap~~interim FY2015 appropriations FY2015 appropriations
for DHS through February 27, 2015. Two additional CRs (P.L. 113-202, December 12, 2014; and for DHS through February 27, 2015. Two additional CRs (P.L. 113-202, December 12, 2014; and
P.L. 113-203, December 13, 2014) were enacted during the lame duck session to provide short-P.L. 113-203, December 13, 2014) were enacted during the lame duck session to provide short-
term appropriations while the consolidated measure was being completed. term appropriations while the consolidated measure was being completed.
During the next congressional session, one further CR was enacted to extend funding for DHS During the next congressional session, one further CR was enacted to extend funding for DHS
through March 6, 2015, to through March 6, 2015, to ~~al ow~~allow time to complete the DHS regular FY2015 appropriations time to complete the DHS regular FY2015 appropriations ~~bil~~
bill (P.L. 114-3). The FY2015 Department of Homeland Security Appropriations Act was enacted on (P.L. 114-3). The FY2015 Department of Homeland Security Appropriations Act was enacted on
March 4, 2015 (P.L. 114-4). March 4, 2015 (P.L. 114-4).
Congressional Research Service 11 The Enactment of Appropriations Measures During Lame Duck Sessions 2016 Lame Duck Session
The lame duck session for 2016 was held from November 14, 2016, to January 2, 2017. The lame duck session for 2016 was held from November 14, 2016, to January 2, 2017.
One regular FY2017 appropriations One regular FY2017 appropriations ~~bil~~ bill (Military Construction and Veterans Affairs) was enacted (Military Construction and Veterans Affairs) was enacted
before the lame duck session began (P.L. 114-223). That law also contained a CR providing before the lame duck session began (P.L. 114-223). That law also contained a CR providing
funding for the other 11 FY2017 appropriations funding for the other 11 FY2017 appropriations ~~bil s~~bills through December 9, 2016. through December 9, 2016.
During the lame duck session, a second CR providing funding through April 28, 2017 (P.L. 114- During the lame duck session, a second CR providing funding through April 28, 2017 (P.L. 114-
254) was enacted on December 10.254) was enacted on December 10.
In the next congressional session, a third CR was enacted on April 28 that provided funding In the next congressional session, a third CR was enacted on April 28 that provided funding
through May 5, 2017 (P.L. 115-30). An omnibus appropriations measure was enacted on May 5 through May 5, 2017 (P.L. 115-30). An omnibus appropriations measure was enacted on May 5
that encompassed the remaining 11 appropriations that encompassed the remaining 11 appropriations ~~bil s~~bills for FY2017 (P.L. 115-3). for FY2017 (P.L. 115-3).
2018 Lame Duck Session
The lame duck session for 2018 was held from November 13, 2018 to January 3, 2019. The lame duck session for 2018 was held from November 13, 2018 to January 3, 2019.
Two omnibus appropriations acts (P.L. 115-244 Two omnibus appropriations acts (P.L. 115-244, and P.L. 115-245), containing a total of five FY2019 P.L. 115-245), containing a total of five FY2019
regular appropriation regular appropriation ~~bil s~~bills (Energy and Water Development, Legislative Branch, and Military (Energy and Water Development, Legislative Branch, and Military
Construction and Veterans Affairs; Defense and Labor-HHS-Education), were enacted prior to the Construction and Veterans Affairs; Defense and Labor-HHS-Education), were enacted prior to the
start of the fiscal year. Division C of P.L. 115-245 contained a CR that provided funding for the start of the fiscal year. Division C of P.L. 115-245 contained a CR that provided funding for the
agencies and activities covered by other seven regular appropriations agencies and activities covered by other seven regular appropriations ~~bil s~~bills through December 7, through December 7,
2018.2018.
During the lame duck session, a second CR (P.L. 115-298), which provided funding through During the lame duck session, a second CR (P.L. 115-298), which provided funding through
December 21, was enacted on December 7. The House and Senate were unable to reach December 21, was enacted on December 7. The House and Senate were unable to reach
agreement on a third CR (H.R. 695), causing funding to lapse after December 21. agreement on a third CR (H.R. 695), causing funding to lapse after December 21.
The funding lapse continued for 34 full days until January 25, 2019, when a third CR (P.L. 116- The funding lapse continued for 34 full days until January 25, 2019, when a third CR (P.L. 116-
5), which provided funding through February 15, was enacted by the new Congress. The full-year 5), which provided funding through February 15, was enacted by the new Congress. The full-year
appropriations for the seven remaining regular appropriations acts were provided by an omnibus appropriations for the seven remaining regular appropriations acts were provided by an omnibus
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~~The Enactment of Appropriations Measures During Lame Duck Sessions~~

~~appropriations measure—the FY2019 Consolidated Appropriations Act, 2019 (P.L. 116-6)—~~
~~which was enacted on February 15.18~~

~~Author Information~~

~~Kevin P. McNellis~~

~~Analyst on Congress and the Legislative Process~~

~~Acknowledgments~~
~~The original version of this report was written by Robert Keith, formerly a Specialist in American National~~
~~Government at CRS. It was revised and updated by Jessica Tollestrup, formerly a Specialist on Congress~~
~~and the Legislative Process, and by Megan Lynch, Specialist~~appropriations measure—the FY2019 Consolidated Appropriations Act, 2019 (P.L. 116-6)—which was enacted on February 15.18 2020 Lame Duck Session The lame duck session for 2020 was held from November 9, 2020 to January 3, 2021. None of the 12 regular appropriations acts was enacted prior to the beginning of FY2021. Consequently, Congress enacted a CR covering all 12 bills on October 1, 2020, to provide continuing appropriations for FY2021 through December 11, 2020 (P.L. 116-159). Congress then extended continuing appropriations for FY2021 four times during the lame duck session, enacting CRs on December 11, 2020 (P.L. 116-215), December 18, 2020 (P.L. 116-225), December 20, 2020 (P.L. 116-226), and December 22, 2020 (P.L. 116-246). On December 21, 2020, the House and Senate passed the Consolidated Appropriations Act of 2021, which the President signed into law on December 27, 2020 (P.L. 116-260). Divisions A through L of the act provided funding for all 12 of the regular appropriations bills for FY2021. 18 For a more detailed discussion of this topic, see CRS Report R45906, Congressional Action on FY2019 Appropriations Measures: 115th and 116th Congresses. Congressional Research Service 12 The Enactment of Appropriations Measures During Lame Duck Sessions Author Information Drew C. Aherne Analyst on Congress and the Legislative Process Acknowledgments Prior versions of this report were written by Robert Keith, formerly a Specialist in American National Government at CRS; Jessica Tollestrup, Specialist in Social Policy; Megan Lynch, Specialist on Congress and the Legislative Process; and Kevin P. McNellis, formerly an Analyst on Congress and the Legislative Process. The on Congress and the Legislative Process. The
listed author is available to respond to inquiries on the subject from congressional clientslisted author is available to respond to inquiries on the subject from congressional clients . .

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than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
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~~18 For a more detailed discussion of this topic, see CRS Report R45906,~~ ~~Congressional Action on FY2019~~
~~Appropriations Measures: 115th and 116th Congresses~~.
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