The Congressional Budget Process Timeline
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The Congressional Budget Process Timeline
September 7, 2022July 27, 2023
The Constitution gives Congress the power of the purse, granting the House and Senate power The Constitution gives Congress the power of the purse, granting the House and Senate power
over overtaxation, borrowing, and spendingspending, revenue, and borrowing decisions. The Constitution does not decisions. The Constitution does not specify how, when,
, however, specify Drew C. Aherne
how, when, and in what order Congress should make these decisions. Consequently, Congress Analyst on Congress and has created a budget process over time through various statutes, rules, practices, and precedents. the Legislative Process These component parts make up a complex process involving multiple decisions and actions that could occur at various points throughout the year. As a result, no single timeline can predict with certainty when the various actions that comprise the congressional budget process will occur. There is, however, a general sequence that the basic steps in the process followand in what order these decisions should be made, however. The budget process created by
Analyst on Congress and
Congress involves multiple decisions and actions that are expected to occur at various points
the Legislative Process
during each fiscal year. Because this process involves multiple, separate decisions, there is no
single timeline that Congress must follow for each fiscal year, although there is a general order
that the basic steps in the process follow. This report provides an overview of the basic steps in
the congressional budget process, when and in what order they typically occur, and any
relationships between them. .
The Congressional Budget Act of 1974 (the Budget Act) created a timetable to coordinate decisions on budgetary The Congressional Budget Act of 1974 (the Budget Act) created a timetable to coordinate decisions on budgetarylegislationmeasures, ,
including the budget resolution, appropriations bills, and any including the budget resolution, appropriations bills, and anypossiblepotential reconciliation legislation. While this timetable provides reconciliation legislation. While this timetable provides
a framework for the steps and sequence of the congressional budget process, the a framework for the steps and sequence of the congressional budget process, theactual timing of events often varies from timing of events often varies from
year to year. year to year.
The annual submission of the President’s budget serves as a statement of Administration policy and priorities for the The annual submission of the President’s budget serves as a statement of Administration policy and priorities for the
upcoming fiscal year and is typically seen as the beginning of the congressional budget cycle. The President is required to upcoming fiscal year and is typically seen as the beginning of the congressional budget cycle. The President is required to
submit a budget by the first Monday in February, but in practice the submission may occur after this date. submit a budget by the first Monday in February, but in practice the submission may occur after this date.
The Budget Act provides for the adoption of a The Budget Act provides for the adoption of aconcurrentbudget resolution resolution on the budget that serves as an agreement between the that serves as an agreement between the
House and Senate House and Senate on a congressionalon a budgetary plan for the upcoming fiscal year. In years when Congress has budgetary plan for the upcoming fiscal year. In years when Congress has completed work onadopted a budget a budget
resolution, it resolution, it has often beenhas typically been adopted in late spring or early summer, though it has sometimes been later. In in late spring or early summer, though it has sometimes been later. In years when a
budget resolution is not adopted, the House andsome recent years, for example, Congress has adopted budget resolutions even after the initial fiscal year for which it applies has begun. In years when Congress does not adopt a budget resolution, the House and/or Senate may employ alternative legislative tools to establish enforceable Senate may employ alternative legislative tools to establish enforceable
budget levels. budget levels.
In years when In years when, and only when, Congress adopts a budget resolution with reconciliation instructions, specified committees are Congress adopts a budget resolution with reconciliation instructions, specified committees are
instructed to develop legislative instructed to develop legislativechangeslanguage to achieve a budgetary effect in accordance with the budget resolution. The to achieve a budgetary effect in accordance with the budget resolution. The
reconciliation process follows a timeline set forth in the budget resolution for that fiscal yearreconciliation process follows a timeline set forth in the budget resolution for that fiscal year and therefore has varied in when it has occurred. Historically, Congress has . Historically, Congress has
passed reconciliation legislation at various points during a year, both before and after the passed reconciliation legislation at various points during a year, both before and after the initial fiscal year for which the budget fiscal year for which the budget
resolution applies began. resolution applies began.
Discretionary spending comprises roughly one-third of federal spending Discretionary spending comprises roughly one-third of federal spendingthatand is provided through the annual appropriations is provided through the annual appropriations
process. The House and Senate Appropriations Committees are responsible for developing annual appropriations measures, process. The House and Senate Appropriations Committees are responsible for developing annual appropriations measures,
and each committee has 12 and each committee has 12identical subcommitteessubcommittees, each responsible for responsible for eachone of the regular appropriations bills. The of the regular appropriations bills. The
appropriations process generally involves action at the subcommittee, full committee, and chamber levels in the House and appropriations process generally involves action at the subcommittee, full committee, and chamber levels in the House and
Senate spanning from initial development after the submission of the President’s budget to enactment of appropriations
measures often into the new fiscal year.
Senate. Preliminary action on the appropriations process begins shortly after the submission of the President’s budget in the late winter or early spring. Subcommittee and full-committee action on appropriations bills generally occurs from spring through the summer, after which appropriations bills may be considered as individual or packaged measures on the floor by the House or Senate from late summer and often into the new fiscal year. To prevent funding gaps and government shutdowns, Congress can enact continuing appropriations measures (commonly To prevent funding gaps and government shutdowns, Congress can enact continuing appropriations measures (commonly
known as continuing resolutions or “CRs”). It is common practice for Congress to enact an initial CR at the end of September known as continuing resolutions or “CRs”). It is common practice for Congress to enact an initial CR at the end of September
and then enact new CRs as needed upon the old one’s expiration. Recent practice has often been and then enact new CRs as needed upon the old one’s expiration. Recent practice has often beenmarked by Congress
enactingfor Congress to enact an initial CR that lasts until November or December and then an initial CR that lasts until November or December and then finishing enactment of regular appropriations bills or a
full-year CRextend this period through subsequent CRs until final action on enacting regular appropriations bills occurs at some point between December and May. at some point between December and May.
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Contents
Introduction ............................................................................................................................... 1
The Congressional Budget Act of 1974 .................................................................................... 1
Submission of the President’s Budget to Congress ................................................................... 2
Adoption of a Budget Resolution .............................................................................................. 3
Reconciliation Legislation ........................................................................................................ 3
Development and Consideration of Appropriations Bills ......................................................... 6
Continuing Resolutions andthe Completion of AnnualFinal Enactment of Regular Appropriations ................................... 7
Figures
Figure 1. Timing of Budget Resolution Adoption and Enactment (or Veto) of
Reconciliation Legislation: FY1981-FY2022 .............................................................................. 5
Figure 2. Aggregate Duration of Continuing Resolutions and Funding Gaps: FY2000-
FY2022FY2023 ......................................................................................................................................... 8
Tables
Table 1. Congressional Budget Process Timetable .......................................................................... 2
Contacts
Author Information ..........................................................................................................................89
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Introduction
The TheConstitution establishes the role of the House and Senate in federal budgetary decisions by
giving Congress the power of the purse. Article I, Section 8, grants congressional budget process generally involves various actions taken and decisions made over the course of the fiscal year. This could include committee, chamber, and bicameral-level decisions on measures affecting spending or revenues.
The Constitution gives Congress the power of the purse, granting the House and Senate power over spending, revenue, and borrowing decisions. Specifically, Article I of the Constitution grants Congress the power to lay and Congress the power to lay and
collect taxes and collect taxes andthe power to borrow moneyto borrow money.1 (Article I, Section Article I, Section 9, grants Congress 8), as well as power over power over
spending decisionsspending decisions as well, stating that. (Article I, Section 9, states: “No Money shall be drawn from the Treasury, but in “No Money shall be drawn from the Treasury, but in
Consequence of Appropriations made by LawConsequence of Appropriations made by Law.”2”). While the Constitution establishes that the power While the Constitution establishes that the power
of the purse must be exercised through the lawmaking process, it does not specify how, when, and of the purse must be exercised through the lawmaking process, it does not specify how, when, and
in what order decisions on budgetary legislation should be made. As a consequence, in what order Congress should make these decisions.
Congress has Congress has
created a budget process over time through various statutes, rules, practices, and precedents. created a budget process over time through various statutes, rules, practices, and precedents.
Together, Together,they formthese component parts make up a complex process involving multiple decisions and actions a complex process involving multiple decisions and actions occurringthat could occur at at
various points during the year. various points during the year.This means thatAs a consequence, there is no single timeline that can be used to there is no single timeline that can be used to
predict with certainty when the various actions that comprise the congressional budget process predict with certainty when the various actions that comprise the congressional budget process
will occur for any given fiscal year. There is, however, a general will occur for any given fiscal year. There is, however, a generalordersequence that the basic steps in the that the basic steps in the
process follow. process follow.
This report provides an overview of the general timing and sequence of the actions that make up This report provides an overview of the general timing and sequence of the actions that make up
the congressional budget process. First, it outlines the timetable the congressional budget process. First, it outlines the timetablein Section 300 offor the process set forth in the the
Congressional Budget Act of 1974Congressional Budget Act of 1974 (the Budget Act). Next, it . Next, itdiscussesdescribes how each of the major steps in the process how each of the major steps in the process
fit into this timeline in practice. fit into this timeline in practice.These stepsThe major actions in the congressional budget process that this report covers include the submission of the President’s budget, include the submission of the President’s budget,
adoption of adoption ofathe budget resolution, potential consideration of reconciliation legislation, budget resolution, potential consideration of reconciliation legislation, development and consideration consideration
of annual appropriations bills, of annual appropriations bills,and the use of continuing appropriations the use of continuing appropriations measures, and the completion of the and the completion of the
annual appropriations processannual appropriations process.3 for a given fiscal year.1
The Congressional Budget Act of 1974
The The Budget Act lays out the general timinggeneral timetable and sequence of events that Congress follows in making budgetary
decisions is laid out in the Congressional Budget Act of 1974 (the Budget Act).4 The Budget Act
created the congressional budget and sequence of events that make up the congressional budget process.2 The act created this process to coordinate decisions on budgetary process to coordinate decisions on budgetary legislation,
measures, including the budget resolution, appropriations including the budget resolution, appropriationsbillslegislation, revenue legislation, and any possible , revenue legislation, and any possible
reconciliation legislation.reconciliation legislation.
As part of these coordination efforts, Section 300 of the Budget Act created a timetable As part of these coordination efforts, Section 300 of the Budget Act created a timetable (as seen in Table 1) for the for the
congressional budget process. congressional budget process.The Budget ActThis timetable provides a series of target and enabling timetable provides a series of target and enabling
dates for the consideration and dates for the consideration andcompletionadoption or enactment of budgetary measures prior to the start of a fiscal year of budgetary measures prior to the start of a fiscal year
on October 1, beginning with the submission of the President’s budget.
1 U.S. Const. art. I, §8, cl. 1-2.
2 U.S. Const. art. I, §9, cl. 7.
3on October 1.
1 For more on the For more on the congressionalfederal budget process, see CRS Report R46240, budget process, see CRS Report R46240, Introduction to the Federal Budget Process, ,
by James V. Saturno. by James V. Saturno.
42 Titles I-IX of P.L. 93-344, codified as amended at 2 U.S.C. §§601-688. Titles I-IX of P.L. 93-344, codified as amended at 2 U.S.C. §§601-688.
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Table 1. Congressional Budget Process Timetable
On or before:
Action to be completed:
First Monday in February First Monday in February
President submits budget. President submits budget.
February 15 February 15
Congressional Budget Office submits report (on Congressional Budget Office submits report (on
the economic and budget outlook) to Budget the economic and budget outlook) to Budget
Committees. Committees.
Not later than 6 weeks after President submits Not later than 6 weeks after President submits
Committees submit views and estimates to Budget Committees submit views and estimates to Budget
budget budget
Committees. Committees.
April 1 April 1
Senate Budget Committee reports concurrent Senate Budget Committee reports concurrent
resolution on the budgetresolution on the budget (budget resolution). .
April 15 April 15
Congress completes action on concurrent Congress completes action on concurrent
resolution on the budget. resolution on the budget.
May 15 May 15
Annual appropriation Annual appropriationbillsbil s may be considered in may be considered in
the House. the House.
June 10 June 10
House Appropriations Committee reports last House Appropriations Committee reports last
annual appropriation annual appropriationbillbil . .
June 15 June 15
Congress completes action on reconciliation Congress completes action on reconciliation
legislation. legislation.
June 30 June 30
House completes action on annual appropriation House completes action on annual appropriation
billsbil s. .
October 1 October 1
Fiscal year begins. Fiscal year begins.
Source: Section 300 of the Congressional Budget Act of 1974, Section 300 of the Congressional Budget Act of 1974, codified as amended as amendedand codified at 2 U.S.C. §631. at 2 U.S.C. §631.
Although the Although the timetable in Section 300 of the Budget ActBudget Act timetable reflects the actions that make up the congressional budget reflects the actions that make up the congressional budget
process, various logistical, political, or economic factors may have an impact on the actual timing
of events in practiceprocess, in practice the timing of events may be influenced by various logistical, political, economic, and other factors. Because most of these actions . Because most of these actions will typically occur as part of each
congressional budget cycle, however, Section 300 providestypically occur over the course of a given fiscal year, however, this timetable does provide a framework for understanding the a framework for understanding the
sequence of sequence ofactionsthe process and how certain and how certain milestonesactions are related to later action on other steps in the are related to later action on other steps in the
process.process.
Submission of the President’s Budget to Congress
With theThe Budget and Accounting Act of 1921 Budget and Accounting Act of 1921, Congress established a requirement for the established a requirement for the
President to submit a budget request for President to submit a budget request foreachthe upcoming fiscal year near the beginning of each calendar fiscal year near the beginning of each calendar
year.year.53 The President’s budget submission serves as a statement of Administration policy priorities The President’s budget submission serves as a statement of Administration policy priorities
as well as a detailed plan for the allocation of budgetary resources and execution of government as well as a detailed plan for the allocation of budgetary resources and execution of government
activities.activities.6 4 Under current law, the President must submit a consolidated budget to Congress no Under current law, the President must submit a consolidated budget to Congress no
later than the first Monday in Februarylater than the first Monday in February. Although the budget, although the submission may occur after this submission may occur after this
date, itdate. The submission of the President’s budget generally signifies the beginning of congressional consideration of budgetary questions generally signifies the beginning of congressional consideration of budgetary questions
concerning the upcoming fiscal year. concerning the upcoming fiscal year.
5
3 Public Law 13, 67th Congress, codified in part at 31 U.S.C. §501. Public Law 13, 67th Congress, codified in part at 31 U.S.C. §501.
64 For more on the President’s budget, see CRS Report R47019, For more on the President’s budget, see CRS Report R47019, The Executive Budget Process: An Overview, by , by
Dominick A. Fiorentino and Taylor N. Riccard. Dominick A. Fiorentino and Taylor N. Riccard.
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Adoption of a Budget Resolution
Section 301 of theThe Budget Act provides for the adoption of a concurrent resolution on the budget Budget Act provides for the adoption of a concurrent resolution on the budget
(the budget resolution) to set to set enforceable budgetary parameters and coordinate congressional budgetary parameters and coordinate congressionalbudgetaryfiscal decisions for the upcoming decisions for the upcoming
fiscal year.fiscal year.5 The budget resolution allows Congress to establish a framework within which the The budget resolution allows Congress to establish a framework within which the
House and Senate will consider House and Senate will considerbudget-relatedbudgetary legislation, set enforceable spending and revenue levels, outline legislation, set revenue and spending levels
enforceable by points of order, set forth high-level spending priorities, and high-level spending priorities, and (if Congress chooses)
, optionally, include instructions that can trigger subsequent reconciliation legislation.include instructions that can trigger subsequent reconciliation legislation.76 In the context of the In the context of the
congressional budget process timeline, the budget resolution can be an important enabling congressional budget process timeline, the budget resolution can be an important enabling
mechanism for later steps in mechanism for later steps in the process.7the process. Adoption of the same budget resolution by both
chambers is required to trigger reconciliation legislation that can affect spending and revenues
and establishes top-line spending amounts for the regular, annual appropriations bills.
The Budget Act sets a target date of April 15 for adoption of The Budget Act sets a target date of April 15 for adoption ofathe budget resolution, although budget resolution, although
Congress has typically adopted budget resolutions after this date. Congress has Congress has typically adopted budget resolutions after this date. Congress hascompleted action
onadopted a budget resolution prior to April 15 four times since FY1985, a budget resolution prior to April 15 four times since FY1985, the last time beingmost recently for FY2004. for FY2004.
In years when Congress has In years when Congress hascompleted work onadopted a budget resolution, it has a budget resolution, it has typicallymost often been in late been in late
spring or early summer in the months of April through June. In some recent years, however, spring or early summer in the months of April through June. In some recent years, however,
Congress has adopted budget resolutions with reconciliation instructions after Congress has adopted budget resolutions with reconciliation instructions afterathe initial fiscal year fiscal year for which it applies has has
begun, doing so for FY2017 (January 13, 2017), FY2018 (October 26, 2017), and FY2021 begun, doing so for FY2017 (January 13, 2017), FY2018 (October 26, 2017), and FY2021
(February 5, 2021). (February 5, 2021).
The Budget Act generally prohibits the consideration ofCongress is generally prohibited from considering budgetary measures before the adoption budgetary measures before the adoption
of a budget resolution, although of a budget resolution, althoughitthe Budget Act does provide a specific exception for the House to does provide a specific exception for the House to begin consideringbegin
consideration of appropriations bills in the absence of one after May 15. appropriations bills in the absence of one after May 15.8 In years when Congress does not adopt a budget resolution In some years, Congress
may not come to agreement on a budget resolution. In the absence of such agreement, the House , the House
andand/or Senate may employ alternative legislative Senate may employ alternative legislative tools (commonly measures (referred to referred to collectively as “deeming as “deeming
resolutions”) to establish enforceable resolutions”) to establish enforceablebudgetbudgetary levels, particularly for the annual appropriations levels, particularly for the annual appropriations
measures.8
process.9 Reconciliation Legislation
Reconciliation is an optional process Reconciliation is an optional processthatthrough which Congress can Congress can use to change current law to make change current law to make
revenue, spending, and debt limit levels consistent with the policies and priorities established in revenue, spending, and debt limit levels consistent with the policies and priorities established in
the budget resolution. In years whenthe budget resolution. In years when, and only when, Congress adopts a budget resolution that Congress adopts a budget resolution that
includes instructions for reconciliation, specified committees are instructed to develop legislative includes instructions for reconciliation, specified committees are instructed to develop legislative
changes to achieve a budgetary effect in accordance with the directives and timeline established changes to achieve a budgetary effect in accordance with the directives and timeline established
in the budget resolution.in the budget resolution.10 The resulting legislation is then considered under expedited procedures The resulting legislation is then considered under expedited procedures
in the in the Senate.11 5 Section 301 of the Budget Act, codified as amended at 2 U.S.C. §632. The Budget Act requires that the budget resolution cover the upcoming fiscal year and at least the subsequent four fiscal years. In current practice, it has been common for the budget resolution to cover the upcoming fiscal year and the subsequent nine fiscal years. 6 For more on budget resolutions, see CRS Report RL30297, Congressional Budget Resolutions: Historical Information, by Bill Heniff Jr. 7 Adoption of the same budget resolution by both chambers is required in order to trigger any enforcement or reconciliation procedures under the Budget Act. 8 Section 303 of the Budget Act, codified as amended at 2 U.S.C. §634. 9Senate.9
The Budget Act sets a target date of June 15 for completing action on reconciliation legislation. In
practice, however, reconciliation follows the timeline established in the budget resolution for that
fiscal year. This means that the timeline for reconciliation legislation varies by year in terms of its
development, consideration, and passage, as well as the time between the adoption of a budget
7 For more on budget resolutions, see CRS Report RL30297, Congressional Budget Resolutions: Historical
Information, by Bill Heniff Jr.
8 For more on deeming resolutions, see CRS Report R44296, For more on deeming resolutions, see CRS Report R44296, Deeming Resolutions: Budget Enforcement in the
Absence of a Budget Resolution, by Megan S. Lynch. , by Megan S. Lynch.
910 Section 310 of the Budget Act, codified as amended at 2 U.S.C. §641. 11 For more on the reconciliation process, see CRS Report R44058, For more on the reconciliation process, see CRS Report R44058, The Budget Reconciliation Process: Stages of
Consideration, by Megan S. Lynch and James V. Saturno. , by Megan S. Lynch and James V. Saturno.
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resolution and Congress completing work on reconciliationThe Budget Act sets a target date of June 15 for enacting reconciliation legislation. In practice, however, reconciliation follows the timeline established in the budget resolution for that fiscal year. This means that the timeline for reconciliation legislation generally varies in terms of its development, consideration, and passage, as well as the time between the adoption of a budget resolution and passage of reconciliation legislation. Furthermore, the reconciliation . Furthermore, the reconciliation
process operates separately from the appropriations process, so while they may occur process operates separately from the appropriations process, so while they may occur
simultaneously, the timing of one generally does not simultaneously, the timing of one generally does nothave a direct impact ondirectly affect the timing of the the timing of the
other. other.
Since the first reconciliation legislation Since the first reconciliation legislation was enacted for FY1981, Congress has passed 27 reconciliation for FY1981, Congress has passed 27 reconciliation
measures,measures and the President has signed 23 into law. Over this period, there has been wide and the President has signed 23 into law. Over this period, there has been wide
variation in the timing of variation in the timing ofconsideration of reconciliation legislation (see Figure 1).10when Congress has considered such legislation (as shown in Figure 1).12 Congress Congress
has passed 12 of the 27 reconciliation measures prior to the start of the has passed 12 of the 27 reconciliation measures prior to the start of the initial fiscal year for which the fiscal year for which the
budget resolution applied. Of these, twobudget resolution applied. Of these, two were passed between May and June, and the other 10 passed between May and June, and the other 10 were passed passed
in August or September. Congress passed the remaining 15 reconciliation measures after the in August or September. Congress passed the remaining 15 reconciliation measures after the initial fiscal fiscal
year for which the budget resolution applied had already begun. Sevenyear for which the budget resolution applied had already begun. Seven were passed between October passed between October
and December, and eight and December, and eight were passed in the next calendar year between January and August. passed in the next calendar year between January and August.
10
12 For more on the timing of the reconciliation process, see CRS Report RL30458, For more on the timing of the reconciliation process, see CRS Report RL30458, The Budget Reconciliation Process:
Timing of Legislative Action, by Megan S. Lynch. , by Megan S. Lynch.
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Figure 1. Timing of Budget Resolution Adoption and Enactment (or Veto) of
Reconciliation Legislation: FY1981-FY2022
Sources: Information compiled from CRS Report R40480, Information compiled from CRS Report R40480, Budget Reconciliation Measures Enacted into Law Since
1980, by Megan S. Lynch; the CRS Appropriations Status Table; and Congress.gov. , by Megan S. Lynch; the CRS Appropriations Status Table; and Congress.gov.
Notes: The “number of days in between the resolution and reconciliation” refers to the number of days The “number of days in between the resolution and reconciliation” refers to the number of days
between Congress adopting a budget resolution and the enactment or veto of reconciliation legislation. The between Congress adopting a budget resolution and the enactment or veto of reconciliation legislation. The
President has vetoed reconciliation legislation four times since FY1981 (FY1996, FY2000, FY2001, and FY2016). President has vetoed reconciliation legislation four times since FY1981 (FY1996, FY2000, FY2001, and FY2016).
Congress has enacted multiple pieces of reconciliation legislation for the same fiscal year three times (FY1983, Congress has enacted multiple pieces of reconciliation legislation for the same fiscal year three times (FY1983,
FY1998, and FY2006), as shown above. Years FY1998, and FY2006), as shown above. Yearswherewhen Congress enacted reconciliation legislation past April of the Congress enacted reconciliation legislation past April of the
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new fiscal year (FY1984, FY1986, FY2006, and FY2022) are represented above by wrapping the timeline around new fiscal year (FY1984, FY1986, FY2006, and FY2022) are represented above by wrapping the timeline around
the x-axis and should the x-axis and shouldstill stil be read from left to right beginning with the adoption of a budget resolution. be read from left to right beginning with the adoption of a budget resolution.
Congressional Research Service 5 The Congressional Budget Process Timeline Development and Consideration of Appropriations Bills
Discretionary spending comprises roughly one-third of federal spending Discretionary spending comprises roughly one-third of federal spendingthatand is provided through is provided through
the annual appropriations annual appropriationsbills. The annual nature of discretionary spending makes October 1 a hard
deadline for Congress, since mostprocess. This process currently consists of the development and consideration of 12 regular appropriations measures, as well as any supplemental appropriations measures that may be needed over the course of a fiscal year. Most of the budget authority enacted through regular appropriations of the budget authority enacted through regular appropriations
billslegislation is provided for a single is provided for a single fiscal year and expires at the end of year and expires at the end of eachthat fiscal year on September 30. This makes October 1 a hard deadline for Congress in enacting regular appropriations for the new fiscal year, as agencies generally cannot obligate money in the absence of appropriations enacted into law.13
Like other aspects of the congressional budget process, the timing of appropriations decisions varies from year to year.14 fiscal year. Agencies generally
may not obligate funds in excess of or in advance of appropriations, so enacting new
appropriations measures is necessary to avoid funding gaps and government shutdowns.11
The House and Senate Appropriations Committees are responsible for developing annual The House and Senate Appropriations Committees are responsible for developing annual
appropriations measures, and each committee currently has 12 identical appropriations measures, and each committee currently has 12 identicalsubcommittees, each one
subcommittees that are each responsible for responsible for developing one of the regular appropriations bills.one of the regular appropriations bills.12 15 The appropriations process The appropriations process for a given fiscal year typically typically
involves action at the subcommittee, involves action at the subcommittee, full committee, chamber floor, and bicameral levels. Thefull committee, and chamber levels. Like other aspects of
the congressional budget process, the timing of appropriations decisions varies from year to
year.13
After the submission of the President’s budget, the House and Senate Appropriations Committees House and Senate Appropriations Committees
typically begin preliminary action on annual appropriations measures in the late winter or early typically begin preliminary action on annual appropriations measures in the late winter or early
springspring, shortly after the submission of the President’s budget. This commonly takes the form of hearings conducted by appropriations subcommittees at . This commonly takes the form of hearings conducted by appropriations subcommittees at
which Administration officials testify about agency funding requests.which Administration officials testify about agency funding requests. 16 Appropriations Appropriations
subcommittees may also solicit input from Memberssubcommittees may also solicit input from Members at this stage, usually through hearings at which Members , usually through hearings at which Members
may testify as well as requests submitted by Member offices.may testify as well as requests submitted by Member offices.1417
Once Once decisions on top-line top-linecommittee spending allocations associated with a budget resolution or deeming
resolution are establisheddiscretionary spending levels are made (known as “302(a) allocations”), the Budget Act requires the House and Senate Appropriations , the Budget Act requires the House and Senate Appropriations
Committees to make Committees to makesub-allocations to their subcommittees. The House Appropriations
subcommittees will then typically draft, mark up, and forwardfurther allocations from that total to each of their subcommittees (known as “302(b) suballocations”).18 With these allocations, the appropriations subcommittees in the House and Senate will typically begin drafting, marking up, and forwarding their respective appropriations bills their respective appropriations bills
to the full committee around May and June. House appropriators generally begin reporting bills
out of the full committee around May or June and finish in June or July. Floor consideration in
the House has historically begun in late summer and continued into the new fiscal year. While the
House has considered some individual appropriations bills on the floor in recent years, it has
become common practice to package either all or some of the bills and consider them together
(commonly referred to as an “omnibus” or “minibus,” respectively). In recent fiscal years, most
appropriations bills have been signed into law as part of omnibus or minibus measures.
The House has historically initiated consideration of regular appropriations measures. In current
practice, however, the Senate Appropriations Committee and its subcommittees have sometimes
reported original Senate bills prior to receiving a House-passed measure. The Senate
Appropriations Committee has historically reported bills around early to late summer, although
the committee has reported few or no bills in recent years. It has been rare in recent years for the
11 For more, see CRS Report R46417, Congress’s Power Over Appropriations: Constitutional and Statutory
Provisions, by Sean M. Stiff.
12 For more on the Appropriations Committees’ subcommittee structure, see CRS Report RL31572, Appropriations
Subcommittee Structure: History of Changes from 1920 to 2021, by James V. Saturno.
13 For more on the appropriations process, see CRS Report R47106, The Appropriations Process: A Brief Overview, by
James V. Saturno and Megan S. Lynch.
14 For more on House Member participation in the appropriations process, see CRS Report R47031, The House
Appropriations Process: Opportunities for Member Participation, by Megan S. Lynch.
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Senate to consider any individual appropriations bill on the floor. Recent practice has generally
been for the Senate to act on a House-passed omnibus or minibus measureto the full committee. Appropriations bills will then be marked up at the full committee level and reported to the full House or Senate for floor consideration.
13 For more, see CRS Report R46417, Congress’s Power Over Appropriations: Constitutional and Statutory Provisions, by Sean M. Stiff.
14 For more on the appropriations process, see CRS Report R47106, The Appropriations Process: A Brief Overview, by James V. Saturno and Megan S. Lynch.
15 For more on the Appropriations Committees’ subcommittee structure, see CRS Report RL31572, Appropriations Subcommittee Structure: History of Changes from 1920 to 2023, by James V. Saturno.
16 In association with the President’s budget request, agencies are required to submit individual agency budget justifications that provide more detail on their budget requests. For more, see CRS Report R47090, Executive Agency Justification of the President’s Budget: In Brief, by Dominick A. Fiorentino. 17 For more on House Member participation in the appropriations process, see CRS Report R47031, The House Appropriations Process: Opportunities for Member Participation, by Megan S. Lynch.
18 Section 302(a) of the Budget Act (codified as amended at 2 U.S.C. §633(a)) requires that overall spending levels set forth in the budget resolution be allocated among every committee in Congress with jurisdiction over spending legislation (known as “302(a) allocations.”) Section 302(b) of the Budget Act (codified as amended at 2 U.S.C. §633(b)) requires the House and Senate Appropriations Committees to make 302(b) suballocations, which serve as enforceable levels for each of the 12 regular appropriations bills. For more on this allocation process, see CRS Report R47388, Enforceable Spending Allocations in the Congressional Budget Process: 302(a)s and 302(b)s, by Drew C. Aherne.
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Historically, the House has initiated consideration of regular appropriations measures.19 In most years, the House Appropriations subcommittees have marked up and forwarded their bills to the full committee between April and July, and the bills have been reported from the full committee shortly thereafter. Consideration of regular appropriations bills on the House floor has historically begun in the summer and sometimes continued into the new fiscal year. While the House has considered some regular appropriations bills on the floor individually in recent years, it has also done so by packaging some or all of the bills to consider them simultaneously (commonly referred to as an “omnibus” or “minibus”).
The Senate Appropriations subcommittees and full committee have historically marked up and reported its bills anywhere from spring to late summer, but the timing and frequency of doing so have varied in recent years. The Senate reported few or no regular appropriations bills for each fiscal year from FY2020 through FY2023, and it has been relatively rare going back even further for the Senate to consider individual appropriations bills on the floor. Instead, the Senate has often acted on House-passed omnibus or minibus measures at a later stage in the at a later stage in the
process.process.
Prior to the start of Prior to the start ofthea new fiscal year on October 1, the House and Senate may consider and pass all, fiscal year on October 1, the House and Senate may consider and pass all,
some, or none of the regular appropriations bills. If a regular appropriations bill is not enacted some, or none of the regular appropriations bills. If a regular appropriations bill is not enacted
prior to the start of a fiscal year, Congress may enact a continuing appropriations measure in prior to the start of a fiscal year, Congress may enact a continuing appropriations measure in
order to avoid a funding gaporder to avoid a funding gap.15 or partial government shutdown.20
Continuing Resolutions andthe Completion of AnnualFinal Enactment of Regular
Appropriations
To avert funding gaps and government shutdowns, when one or more regular appropriations bills To avert funding gaps and government shutdowns, when one or more regular appropriations bills
have not been enactedhave not been enacted by October 1, Congress may provide interim , Congress may provide interim budget authority to authority toobligate funds agencies by enacting by enacting
continuing appropriations measures (commonly known as continuing appropriations measures (commonly known as “continuing resolutionscontinuing resolutions” or “CRs”). or “CRs”).16
Since the fiscal year was set as October 1 through September 30 beginning with FY1977,
Continuing resolutions typically provide budget authority at a specified rate, generally allowing agencies to obligate funds at a rate necessary to continue operations funded in the previous fiscal year. Continuing resolutions also place certain restrictions on agency spending while they are in effect. For example, CRs generally prohibit agencies from carrying out new programs, projects, and activities that were not funded in the previous fiscal year or making decisions that undermine Congress’s ability to make final, full-year funding decisions.21 Since FY1977, when the fiscal year was set as October 1 through September 30, Congress has enacted one or more CRs in all but three fiscal years, including in each fiscal year Congress has enacted one or more CRs in all but three fiscal years, including in each fiscal year
since FY2000 (see Figure 2).17 CRs can since FY1998.22 CRs vary in both duration and timing, but Congress typically vary in both duration and timing, but Congress typically
enacts an initial CR in late September in the final enacts an initial CR in late September in the final days or weeks of the fiscal year that provides budget authority for the first weeks or monthsweeks or days of the of the new fiscal year. From FY2013 fiscal year. From FY2013
to FY2022through FY2023, for example, the initial CR enacted by Congress was in effect once until November, , for example, the initial CR enacted by Congress was in effect once until November,
seveneight times until December, once until January, and once until March. Congress may times until December, once until January, and once until March. Congress may
subsequently enact subsequently enactfurtheradditional CRs upon CRs upon the originalthe old one’s expiration while work is completed on ’s expiration while work is completed on the
remaining regular appropriations billsany regular appropriations bills that have yet
19 In some recent years, however, the Senate has developed and reported original Senate bills prior to receiving a House-passed measure.
20 For more on federal funding gaps, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by James V. Saturno.
21 For more on continuing resolutions, see CRS Report R46595, Continuing Resolutions: Overview of Components and Practices, coordinated by James V. Saturno.
22 Congress enacted all regular appropriations bills prior to October 1 for FY1977, FY1989, FY1995, and FY1997, although two CRs were enacted for FY1977 to provide funding for certain activities that were not included in regular appropriations acts.
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The Congressional Budget Process Timeline
to be enacted. Historically, these subsequent CRs have lasted anywhere . Historically, these subsequent CRs have lasted anywhere
from a few days to months, although Congress may choose to enact a CR that lasts through the from a few days to months, although Congress may choose to enact a CR that lasts through the
end of the fiscal yearend of the fiscal year.
(known as a “full-year CR”).23 The aggregate duration of CRs varies The aggregate duration of CRs variesfrom year to year depending on when Congress completes depending on when Congress completes
action on action on all regular appropriations regular appropriationsmeasures oror if it enacts a full-year CR enacts a full-year CR (as shown in Figure 2). From FY2013 to . From FY2013 to FY2022FY2023, for , for
example, Congress example, Congresspassedenacted all appropriations bills or enacted a full-year CR all appropriations bills or enacted a full-year CR three four times in times in
December, once in January, once in February, four times in March, and once in May.December, once in January, once in February, four times in March, and once in May.
15 For more on federal funding gaps, see CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by James V.
Saturno.
16 For more on CRs, see CRS Report R46595, Continuing Resolutions: Overview of Components and Practices,
coordinated by Kevin P. McNellis.
17 Congress passed all regular appropriations bills prior to October 1 in FY1989, FY1995, and FY1997, thus
eliminating the need for a CR.
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The Congressional Budget Process Timeline
In recent practice, it has been common for all or most of the regular appropriations bills to be enacted together as part of an omnibus or minibus measure. Figure 2. Aggregate Duration of Continuing Resolutions and Funding Gaps: FY2000-
FY2022FY2023
Source: Information compiled from CRS Report R46595, Information compiled from CRS Report R46595, Continuing Resolutions: Overview of Components and
Practices, coordinated by , coordinated byKevin P. McNellisJames V. Saturno; CRS Report RS20348, ; CRS Report RS20348, Federal Funding Gaps: A Brief Overview, by James , by James
V. Saturno; and the CRS Appropriations Status Table. V. Saturno; and the CRS Appropriations Status Table.
Notes: Each Eachcolored segment of the bar for a fiscal year represents the duration segment of the bar for a fiscal year represents the duration ofthat one CR or funding gap one CR or funding gap was in effect. .
Funding gaps in FY2014, FY2018, and FY2019 are represented with red striped shading. The left-most segment Funding gaps in FY2014, FY2018, and FY2019 are represented with red striped shading. The left-most segment
for each fiscal year represents the first CR enacted by Congress, beginning coverage on October 1. The number for each fiscal year represents the first CR enacted by Congress, beginning coverage on October 1. The number
on the right-hand side of each bar represents the total number of days between October 1 and the on the right-hand side of each bar represents the total number of days between October 1 and the enactment of enactment of
the final regular appropriations measure for that fiscal yearthe final regular appropriations measure for that fiscal year (including October 1). For FY2007, FY2011, and FY2013, some or all of the . For FY2007, FY2011, and FY2013, some or all of the
regular appropriations regular appropriationsbillsbil s were funded through a were funded through a fullful -year CR, as shown above. This graph does not convey -year CR, as shown above. This graph does not convey
coverage of CRs. CRs can cover all or only some of the regular appropriations coverage of CRs. CRs can cover all or only some of the regular appropriationsbillsbil s. Enactment of a CR does not . Enactment of a CR does not
mean that none of the regular appropriations mean that none of the regular appropriations billsbil s were enacted prior, nor does it preclude passage of regular were enacted prior, nor does it preclude passage of regular
appropriations measures while the CR is in effect.appropriations measures while the CR is in effect.
Author Information
Drew C. Aherne
Analyst on Congress and the Legislative Process
Congressional Research Service
8
The Congressional Budget Process Timeline
23 Since FY2000, Congress has enacted full-year CRs that covered at least one of the regular appropriations bills three times (FY2007, FY2011, and FY2013). Congressional Research Service 8 The Congressional Budget Process Timeline Author Information Drew C. Aherne Analyst on Congress and the Legislative Process
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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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R47235 R47235 · VERSION1 · NEW4 · UPDATED
9 9
The Constitution gives Congress the power of the purse, granting the House and Senate power The Constitution gives Congress the power of the purse, granting the House and Senate power
over over
, however, specify Drew C. Aherne
how, when, and in what order Congress should make these decisions. Consequently, Congress Analyst on Congress and has created a budget process over time through various statutes, rules, practices, and precedents. the Legislative Process These component parts make up a complex process involving multiple decisions and actions that could occur at various points throughout the year. As a result, no single timeline can predict with certainty when the various actions that comprise the congressional budget process will occur. There is, however, a general sequence that the basic steps in the process follow
The Congressional Budget Act of 1974 (the Budget Act) created a timetable to coordinate decisions on budgetary The Congressional Budget Act of 1974 (the Budget Act) created a timetable to coordinate decisions on budgetary
including the budget resolution, appropriations bills, and any including the budget resolution, appropriations bills, and any
a framework for the steps and sequence of the congressional budget process, the a framework for the steps and sequence of the congressional budget process, the
year to year. year to year.
The annual submission of the President’s budget serves as a statement of Administration policy and priorities for the The annual submission of the President’s budget serves as a statement of Administration policy and priorities for the
upcoming fiscal year and is typically seen as the beginning of the congressional budget cycle. The President is required to upcoming fiscal year and is typically seen as the beginning of the congressional budget cycle. The President is required to
submit a budget by the first Monday in February, but in practice the submission may occur after this date. submit a budget by the first Monday in February, but in practice the submission may occur after this date.
The Budget Act provides for the adoption of a The Budget Act provides for the adoption of a
House and Senate House and Senate on a congressional
resolution, it resolution, it has often been
budget levels. budget levels.
In years when In years when
instructed to develop legislative instructed to develop legislative
reconciliation process follows a timeline set forth in the budget resolution for that fiscal yearreconciliation process follows a timeline set forth in the budget resolution for that fiscal year and therefore has varied in when it has occurred. Historically, Congress has . Historically, Congress has
passed reconciliation legislation at various points during a year, both before and after the passed reconciliation legislation at various points during a year, both before and after the initial fiscal year for which the budget fiscal year for which the budget
resolution applies began. resolution applies began.
Discretionary spending comprises roughly one-third of federal spending Discretionary spending comprises roughly one-third of federal spending
process. The House and Senate Appropriations Committees are responsible for developing annual appropriations measures, process. The House and Senate Appropriations Committees are responsible for developing annual appropriations measures,
and each committee has 12 and each committee has 12
appropriations process generally involves action at the subcommittee, full committee, and chamber levels in the House and appropriations process generally involves action at the subcommittee, full committee, and chamber levels in the House and
Senate. Preliminary action on the appropriations process begins shortly after the submission of the President’s budget in the late winter or early spring. Subcommittee and full-committee action on appropriations bills generally occurs from spring through the summer, after which appropriations bills may be considered as individual or packaged measures on the floor by the House or Senate from late summer and often into the new fiscal year. To prevent funding gaps and government shutdowns, Congress can enact continuing appropriations measures (commonly To prevent funding gaps and government shutdowns, Congress can enact continuing appropriations measures (commonly
known as continuing resolutions or “CRs”). It is common practice for Congress to enact an initial CR at the end of September known as continuing resolutions or “CRs”). It is common practice for Congress to enact an initial CR at the end of September
and then enact new CRs as needed upon the old one’s expiration. Recent practice has often been and then enact new CRs as needed upon the old one’s expiration. Recent practice has often been
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Contents
Introduction ............................................................................................................................... 1
The Congressional Budget Act of 1974 .................................................................................... 1
Submission of the President’s Budget to Congress ................................................................... 2
Adoption of a Budget Resolution .............................................................................................. 3
Reconciliation Legislation ........................................................................................................ 3
Development and Consideration of Appropriations Bills ......................................................... 6
Continuing Resolutions and
Figures
Figure 1. Timing of Budget Resolution Adoption and Enactment (or Veto) of
Reconciliation Legislation: FY1981-FY2022 .............................................................................. 5
Figure 2. Aggregate Duration of Continuing Resolutions and Funding Gaps: FY2000-
Tables
Table 1. Congressional Budget Process Timetable .......................................................................... 2
Contacts
Author Information ..........................................................................................................................
Congressional Research Service Congressional Research Service
Introduction
The The
collect taxes and collect taxes and
spending decisionsspending decisions
Consequence of Appropriations made by LawConsequence of Appropriations made by Law
of the purse must be exercised through the lawmaking process, it does not specify how, when, and of the purse must be exercised through the lawmaking process, it does not specify how, when, and
created a budget process over time through various statutes, rules, practices, and precedents. created a budget process over time through various statutes, rules, practices, and precedents.
Together, Together,
various points during the year. various points during the year.
predict with certainty when the various actions that comprise the congressional budget process predict with certainty when the various actions that comprise the congressional budget process
will occur for any given fiscal year. There is, however, a general will occur for any given fiscal year. There is, however, a general
process follow. process follow.
This report provides an overview of the general timing and sequence of the actions that make up This report provides an overview of the general timing and sequence of the actions that make up
the congressional budget process. First, it outlines the timetable the congressional budget process. First, it outlines the timetable
Congressional Budget Act of 1974Congressional Budget Act of 1974 (the Budget Act). Next, it . Next, it
fit into this timeline in practice. fit into this timeline in practice.
adoption of adoption of
of annual appropriations bills, of annual appropriations bills,
annual appropriations processannual appropriations process
The Congressional Budget Act of 1974
The The Budget Act lays out the general timing
measures, including the budget resolution, appropriations including the budget resolution, appropriations
reconciliation legislation.reconciliation legislation.
As part of these coordination efforts, Section 300 of the Budget Act created a timetable As part of these coordination efforts, Section 300 of the Budget Act created a timetable (as seen in Table 1) for the for the
congressional budget process. congressional budget process.
dates for the consideration and dates for the consideration and
by James V. Saturno. by James V. Saturno.
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The Congressional Budget Process Timeline
Table 1. Congressional Budget Process Timetable
On or before:
Action to be completed:
First Monday in February First Monday in February
President submits budget. President submits budget.
February 15 February 15
Congressional Budget Office submits report (on Congressional Budget Office submits report (on
the economic and budget outlook) to Budget the economic and budget outlook) to Budget
Committees. Committees.
Not later than 6 weeks after President submits Not later than 6 weeks after President submits
Committees submit views and estimates to Budget Committees submit views and estimates to Budget
budget budget
Committees. Committees.
April 1 April 1
Senate Budget Committee reports concurrent Senate Budget Committee reports concurrent
resolution on the budgetresolution on the budget (budget resolution). .
April 15 April 15
Congress completes action on concurrent Congress completes action on concurrent
resolution on the budget. resolution on the budget.
May 15 May 15
Annual appropriation Annual appropriation
the House. the House.
June 10 June 10
House Appropriations Committee reports last House Appropriations Committee reports last
annual appropriation annual appropriation
June 15 June 15
Congress completes action on reconciliation Congress completes action on reconciliation
legislation. legislation.
June 30 June 30
House completes action on annual appropriation House completes action on annual appropriation
October 1 October 1
Fiscal year begins. Fiscal year begins.
Source: Section 300 of the Congressional Budget Act of 1974, Section 300 of the Congressional Budget Act of 1974, codified as amended as amended
Although the Although the timetable in Section 300 of the Budget Act
sequence of sequence of
process.process.
Submission of the President’s Budget to Congress
President to submit a budget request for President to submit a budget request for
year.year.
as well as a detailed plan for the allocation of budgetary resources and execution of government as well as a detailed plan for the allocation of budgetary resources and execution of government
activities.activities.
later than the first Monday in Februarylater than the first Monday in February
concerning the upcoming fiscal year. concerning the upcoming fiscal year.
Dominick A. Fiorentino and Taylor N. Riccard. Dominick A. Fiorentino and Taylor N. Riccard.
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Adoption of a Budget Resolution
(the budget resolution) to set to set enforceable budgetary parameters and coordinate congressional budgetary parameters and coordinate congressional
fiscal year.fiscal year.5 The budget resolution allows Congress to establish a framework within which the The budget resolution allows Congress to establish a framework within which the
House and Senate will consider House and Senate will consider
, optionally, include instructions that can trigger subsequent reconciliation legislation.include instructions that can trigger subsequent reconciliation legislation.
congressional budget process timeline, the budget resolution can be an important enabling congressional budget process timeline, the budget resolution can be an important enabling
mechanism for later steps in mechanism for later steps in the process.7
The Budget Act sets a target date of April 15 for adoption of The Budget Act sets a target date of April 15 for adoption of
Congress has typically adopted budget resolutions after this date. Congress has Congress has typically adopted budget resolutions after this date. Congress has
In years when Congress has In years when Congress has
spring or early summer in the months of April through June. In some recent years, however, spring or early summer in the months of April through June. In some recent years, however,
Congress has adopted budget resolutions with reconciliation instructions after Congress has adopted budget resolutions with reconciliation instructions after
begun, doing so for FY2017 (January 13, 2017), FY2018 (October 26, 2017), and FY2021 begun, doing so for FY2017 (January 13, 2017), FY2018 (October 26, 2017), and FY2021
(February 5, 2021). (February 5, 2021).
of a budget resolution, although of a budget resolution, although
resolutions”) to establish enforceable resolutions”) to establish enforceable
process.9 Reconciliation Legislation
Reconciliation is an optional process Reconciliation is an optional process
revenue, spending, and debt limit levels consistent with the policies and priorities established in revenue, spending, and debt limit levels consistent with the policies and priorities established in
the budget resolution. In years whenthe budget resolution. In years when
includes instructions for reconciliation, specified committees are instructed to develop legislative includes instructions for reconciliation, specified committees are instructed to develop legislative
changes to achieve a budgetary effect in accordance with the directives and timeline established changes to achieve a budgetary effect in accordance with the directives and timeline established
in the budget resolution.in the budget resolution.10 The resulting legislation is then considered under expedited procedures The resulting legislation is then considered under expedited procedures
in the in the Senate.11 5 Section 301 of the Budget Act, codified as amended at 2 U.S.C. §632. The Budget Act requires that the budget resolution cover the upcoming fiscal year and at least the subsequent four fiscal years. In current practice, it has been common for the budget resolution to cover the upcoming fiscal year and the subsequent nine fiscal years. 6 For more on budget resolutions, see CRS Report RL30297, Congressional Budget Resolutions: Historical Information, by Bill Heniff Jr. 7 Adoption of the same budget resolution by both chambers is required in order to trigger any enforcement or reconciliation procedures under the Budget Act. 8 Section 303 of the Budget Act, codified as amended at 2 U.S.C. §634. 9
Absence of a Budget Resolution, by Megan S. Lynch. , by Megan S. Lynch.
Consideration, by Megan S. Lynch and James V. Saturno. , by Megan S. Lynch and James V. Saturno.
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link to page 8 link to page 8 The Congressional Budget Process Timeline
process operates separately from the appropriations process, so while they may occur process operates separately from the appropriations process, so while they may occur
simultaneously, the timing of one generally does not simultaneously, the timing of one generally does not
other. other.
Since the first reconciliation legislation Since the first reconciliation legislation was enacted for FY1981, Congress has passed 27 reconciliation for FY1981, Congress has passed 27 reconciliation
variation in the timing of variation in the timing of
has passed 12 of the 27 reconciliation measures prior to the start of the has passed 12 of the 27 reconciliation measures prior to the start of the initial fiscal year for which the fiscal year for which the
budget resolution applied. Of these, twobudget resolution applied. Of these, two were passed between May and June, and the other 10 passed between May and June, and the other 10 were passed passed
in August or September. Congress passed the remaining 15 reconciliation measures after the in August or September. Congress passed the remaining 15 reconciliation measures after the initial fiscal fiscal
year for which the budget resolution applied had already begun. Sevenyear for which the budget resolution applied had already begun. Seven were passed between October passed between October
and December, and eight and December, and eight were passed in the next calendar year between January and August. passed in the next calendar year between January and August.
Timing of Legislative Action, by Megan S. Lynch. , by Megan S. Lynch.
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The Congressional Budget Process Timeline
Figure 1. Timing of Budget Resolution Adoption and Enactment (or Veto) of
Reconciliation Legislation: FY1981-FY2022
Sources: Information compiled from CRS Report R40480, Information compiled from CRS Report R40480, Budget Reconciliation Measures Enacted into Law Since
1980, by Megan S. Lynch; the CRS Appropriations Status Table; and Congress.gov. , by Megan S. Lynch; the CRS Appropriations Status Table; and Congress.gov.
Notes: The “number of days in between the resolution and reconciliation” refers to the number of days The “number of days in between the resolution and reconciliation” refers to the number of days
between Congress adopting a budget resolution and the enactment or veto of reconciliation legislation. The between Congress adopting a budget resolution and the enactment or veto of reconciliation legislation. The
President has vetoed reconciliation legislation four times since FY1981 (FY1996, FY2000, FY2001, and FY2016). President has vetoed reconciliation legislation four times since FY1981 (FY1996, FY2000, FY2001, and FY2016).
Congress has enacted multiple pieces of reconciliation legislation for the same fiscal year three times (FY1983, Congress has enacted multiple pieces of reconciliation legislation for the same fiscal year three times (FY1983,
FY1998, and FY2006), as shown above. Years FY1998, and FY2006), as shown above. Years
the x-axis and should the x-axis and should
Congressional Research Service 5 The Congressional Budget Process Timeline Development and Consideration of Appropriations Bills
Discretionary spending comprises roughly one-third of federal spending Discretionary spending comprises roughly one-third of federal spending
the annual appropriations annual appropriations
appropriations measures, and each committee currently has 12 identical appropriations measures, and each committee currently has 12 identical
subcommittees that are each responsible for responsible for developing one of the regular appropriations bills.one of the regular appropriations bills.
involves action at the subcommittee, involves action at the subcommittee, full committee, chamber floor, and bicameral levels. The
typically begin preliminary action on annual appropriations measures in the late winter or early typically begin preliminary action on annual appropriations measures in the late winter or early
which Administration officials testify about agency funding requests.which Administration officials testify about agency funding requests.
subcommittees may also solicit input from Memberssubcommittees may also solicit input from Members at this stage, usually through hearings at which Members , usually through hearings at which Members
may testify as well as requests submitted by Member offices.may testify as well as requests submitted by Member offices.
Once Once decisions on top-line top-line
Committees to make Committees to make
process.process.
Prior to the start of Prior to the start of
some, or none of the regular appropriations bills. If a regular appropriations bill is not enacted some, or none of the regular appropriations bills. If a regular appropriations bill is not enacted
prior to the start of a fiscal year, Congress may enact a continuing appropriations measure in prior to the start of a fiscal year, Congress may enact a continuing appropriations measure in
order to avoid a funding gaporder to avoid a funding gap
Continuing Resolutions and
Appropriations
To avert funding gaps and government shutdowns, when one or more regular appropriations bills To avert funding gaps and government shutdowns, when one or more regular appropriations bills
have not been enactedhave not been enacted by October 1, Congress may provide interim , Congress may provide interim budget authority to authority to
continuing appropriations measures (commonly known as continuing appropriations measures (commonly known as “continuing resolutionscontinuing resolutions” or “CRs”). or “CRs”).
Continuing resolutions typically provide budget authority at a specified rate, generally allowing agencies to obligate funds at a rate necessary to continue operations funded in the previous fiscal year. Continuing resolutions also place certain restrictions on agency spending while they are in effect. For example, CRs generally prohibit agencies from carrying out new programs, projects, and activities that were not funded in the previous fiscal year or making decisions that undermine Congress’s ability to make final, full-year funding decisions.21 Since FY1977, when the fiscal year was set as October 1 through September 30, Congress has enacted one or more CRs in all but three fiscal years, including in each fiscal year Congress has enacted one or more CRs in all but three fiscal years, including in each fiscal year
enacts an initial CR in late September in the final enacts an initial CR in late September in the final days or weeks of the fiscal year that provides budget authority for the first weeks or months
subsequently enact subsequently enact
from a few days to months, although Congress may choose to enact a CR that lasts through the from a few days to months, although Congress may choose to enact a CR that lasts through the
end of the fiscal yearend of the fiscal year
(known as a “full-year CR”).23 The aggregate duration of CRs varies The aggregate duration of CRs varies
action on action on all regular appropriations regular appropriations
example, Congress example, Congress
December, once in January, once in February, four times in March, and once in May.December, once in January, once in February, four times in March, and once in May.
In recent practice, it has been common for all or most of the regular appropriations bills to be enacted together as part of an omnibus or minibus measure. Figure 2. Aggregate Duration of Continuing Resolutions and Funding Gaps: FY2000-
Source: Information compiled from CRS Report R46595, Information compiled from CRS Report R46595, Continuing Resolutions: Overview of Components and
Practices, coordinated by , coordinated by
V. Saturno; and the CRS Appropriations Status Table. V. Saturno; and the CRS Appropriations Status Table.
Notes: Each Each
Funding gaps in FY2014, FY2018, and FY2019 are represented with red striped shading. The left-most segment Funding gaps in FY2014, FY2018, and FY2019 are represented with red striped shading. The left-most segment
for each fiscal year represents the first CR enacted by Congress, beginning coverage on October 1. The number for each fiscal year represents the first CR enacted by Congress, beginning coverage on October 1. The number
on the right-hand side of each bar represents the total number of days between October 1 and the on the right-hand side of each bar represents the total number of days between October 1 and the enactment of enactment of
the final regular appropriations measure for that fiscal yearthe final regular appropriations measure for that fiscal year (including October 1). For FY2007, FY2011, and FY2013, some or all of the . For FY2007, FY2011, and FY2013, some or all of the
regular appropriations regular appropriations
coverage of CRs. CRs can cover all or only some of the regular appropriations coverage of CRs. CRs can cover all or only some of the regular appropriations
appropriations measures while the CR is in effect.appropriations measures while the CR is in effect.
23 Since FY2000, Congress has enacted full-year CRs that covered at least one of the regular appropriations bills three times (FY2007, FY2011, and FY2013). Congressional Research Service 8 The Congressional Budget Process Timeline Author Information Drew C. Aherne Analyst on Congress and the Legislative Process
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This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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