Congressional Votes on Free Trade Agreements and Trade Promotion Authority

Updated November 25, 2024

Congressional Research Service

https://crsreports.congress.gov

R45846

Congressional Research Service

SUMMARY

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

Updated April 16, 2025 (R45846) Jump to Main Text of Report

Contents

• Congress and Free Trade Agreements

Tables

• Table 1. U.S. Free Trade Agreements and Trade Promotion Authority: A Timeline
• Table 2. Final Votes on Free Trade Agreement (FTA) Implementing Legislation
• Table 3. U.S. Membership to the World Trade Organization (WTO): Legislation and Votes
• Table 4. Final Votes on Trade Promotion Authority (TPA) Provisions

Appendixes

• Appendix. Selected CRS Reports

Summary

Congress has sole constitutional authority to regulate international trade. Since 1934, Congress has periodically authorized the President to negotiate trade agreements. In some circumstances, congressional approval, via implementing legislation, may be required to give effect to those agreements. Since 1979, Congress has passed 17 implementing measures for comprehensive free trade agreements (FTAs) and multilateral trade agreements. Most recently, Congress considered and approved the United States-Mexico-Canada Agreement (USMCA) (P.L. 116-113).).

Congress also periodically considers legislation to grant Trade Promotion Authority (TPA) to the President for limited time periods. Through TPA legislation, Congress delegates certain trade agreement negotiating authorities to the President; defines specific trade negotiation objectives; and sets consultation requirements. TPA legislation also outlines the terms, requirements, and procedures for FTA implementing legislation to receive expedited consideration in Congress. All but one of the 17 trade agreements approved by Congress since 1979 were considered in Congress under TPA.

Since 1979, Congress has passed six measures extending TPA for limited time periods. The most recent TPA was passed in 2015; this authority expired on July 1, 2021, potentially complicating the Administration’'s future trade negotiations. As with many international trade issues, TPA has been politically contentious over time, resulting in vigorous debate and three notable lapses in authority, including the current lapse.

Congress also has a specific role in determining U.S. membership to the World Trade Organization (WTO). Congress first approved U.S. membership in the international organization in 1994, by passing the implementing legislation for the WTO Uruguay Round Agreements. The implementing legislation also established a procedure whereby, every five years, Congress can withdraw the United States from the WTO through a joint resolution. In the 116^th Congress, two resolutions were introduced to withdraw U.S. membership from the WTO; neither were brought up for a vote.

119^th Congress, Representative Tom Tiffany introduced H.J.Res. 93, on April 10, 2025, to withdraw congressional approval of the WTO agreements.

The following report and tables compile the final congressional votes on FTAs, TPA, and U.S. membership to the WTO.

R45846

November 25, 2024

Keigh E. Hammond Senior Research Librarian

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

Congressional Research Service 1

Congress and Free Trade Agreements

Congress and Free Trade Agreements

This report compiles the final congressional votes on free trade agreements (FTAs), trade promotion authority (TPA), and U.S. membership to the World Trade Organization (WTO).

In the past For over 30 years, the United States has pursued bilateral, regional, and multilateral trade agreements in an attempt to liberalize markets and reduce trade and investment barriers. Congress has played a central role in shaping this trade policy. Congress—through debate and legislation— defines trade negotiation priorities and approves FTAs. Congress also helps oversee agreements’' implementation and enforcement.

The Constitution grants Congress sole authority to regulate international trade, and grants the President authority to enter into treaties with foreign powers.¹ Since 1934, Congress has periodically delegated some authority to negotiate trade agreements to the President. In the Trade Act of 1974, Congress outlined roles regarding the negotiation of trade agreements; Congress delegated negotiation authority to the President, but required congressional approval (through implementation legislation) of FTAs that addressed non-tariff barriers. Congress also created a process to allow for expedited consideration of trade agreements that address non-tariff barriers and require changes to U.S. law, provided that the President observe certain statutory requirements.² This expedient consideration is known as TPA or, formerly, “"fast-track”" consideration.³

Free Trade Agreements: Bilateral and Regional

The United States is currently party to 12 bilateral FTAs (with Australia, Bahrain, Chile, Colombia, Israel, Jordan, South Korea, Morocco, Oman, Panama, Peru, and Singapore) and to two regional FTAs (United States-Mexico-Canada Agreement (USMCA) and the Dominican Republic-Central America-United States Free Trade Agreement (CAFTA-DR)). (For a list and timeline of FTAs, see Table 1. For a compilation of final congressional votes on FTAs considered by Congress, see Table 2.) These FTAs are considered comprehensive trade agreements, covering “"substantially all trade”" between partners.

The United States has also negotiated more limited agreements that have focused on select bilateral trade and tariff issues. Recent examples of limited-scope agreements include the agreements with Taiwan (2023); with Japan on critical minerals (2023), digital trade (2020), and limited tariff reductions (2020); and with China on the “"phase one”" agreement (2020). These limited-scope agreements have generally not required congressional approval or changes to U.S. law.⁴ This report does not cover these limited-scope agreements.

1 Article I, Section 8, of the U.S. Constitution authorizes Congress “To regulate Commerce with foreign Nations ... ” and “To lay and collect Taxes, Duties, Imposts, and Excises.... ” Article II, Section 2 authorizes the President, with the advice and consent of the Senate, to make treaties and appoint ambassadors. For more see CRS Report R47679, Congressional and Executive Authority Over Foreign Trade Agreements, by Christopher T. Zirpoli.

2 Section 102 of the Trade Act of 1974, as amended.

3 For more on Trade Promotion Authority see CRS In Focus IF10038, Trade Promotion Authority (TPA), by Christopher A. Casey and Cathleen D. Cimino-Isaacs.

4 In the case of the first Taiwan agreement under the U.S.-Taiwan trade initiative, Congress passed P.L. 118-13 which provided ex-post approval of the agreement. The law also addressed congressional concerns that the President was negotiating trade agreements without congressional authority; set conditions for the agreement’s entry into force, and set consultative requirements for future agreements under the U.S.-Taiwan trade initiative. For more on presidential authorities for limited scope trade agreements, see CRS Report R47679, Congressional and Executive Authority Over (continued...)

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Multilateral Trade Agreements and the World Trade Organization

Multilateral Trade Agreements and the World Trade Organization

In addition to bilateral and regional FTAs, the United States is also party to multilateral trade agreements that outline membership in the WTO, a 164-member international organization. The WTO was created in 1995 to oversee and administer multilateral trade rules, serve as a forum for trade liberalization negotiations, and resolve trade disputes.⁵ When Congress approved the WTO Uruguay Round Agreements, it included a set of procedures to allow Congress to reconsider U.S. membership in the WTO by passing a joint resolution calling for withdrawal from the organization.⁶ Congress may vote every five years on withdrawal from the WTO. Resolutions were introduced and voted on in the House during the 106^th and 109^th Congress; neither passed. In the 116^th Congress, two resolutions to withdraw from the WTO were introduced (H.J.Res. 89 and S.J.Res. 71); neither were brought up for a vote. Most recently, in the 119^th Congress, Representative Tiffany has introduced H.J.Res. 93 to withdraw congressional approval of the WTO agreements. The resolution was referred to the House Ways and Means Committee on April 10, 2025. ); neither were brought up for a vote. See Table 3 for a compilation of legislation and votes concerning U.S. membership to the WTO.

Trade Promotion Authority

Implementing legislation for all U.S. FTAs, except the agreement with Jordan, was considered in Congress under Trade Promotion Authority (TPA). TPA is the process by which Congress enables FTA implementing legislation to be considered under expedited legislative procedures, provided the President observes certain statutory obligations. Because TPA is extended only for limited periods, Congress periodically considers legislation to extend it and to outline future trade negotiation objectives and consultation requirements. Since 1974, Congress has passed seven measures extending TPA. Most recently, Congress passed TPA legislation in 2015 (via the Bipartisan Congressional Trade Priorities and Accountability Act of 2015, P.L. 114-26); this authority lapsed on July 1, 2021. TPA, like many issues related to international trade, has been politically contentious in Congress over time, resulting in vigorous debate and two previous eight-year lapses in authority.⁷ For a list of final votes on TPA, see Table 4.

Congressional Votes on Select Trade Legislation

Congressional consideration of bills can be a complex process, sometimes requiring multiple votes. For clarity’'s sake, this report only provides the final vote for each measure. More complete bill information can be found on Congress.gov—including roll call votes for all legislation back to 1993. The bill numbers listed in the following tables link to Congress.gov, and the vote tallies link to the House and Senate roll call votes, for all votes back to 1993.

Table 1 provides a timeline of FTAs including the date the agreement was signed, the date implementing legislation was enacted, and the date the agreement went into force. The table also notes the TPA legislation under which the trade agreement was considered in Congress. The table includes comprehensive FTAs that have entered into force and have required congressional approval. This table does not include limited-scope agreements that have not explicitly required

Foreign Trade Agreements, by Christopher T. Zirpoli, and CRS In Focus IF11400, Presidential Authority to Address Tariff Barriers in Trade Agreements, by Christopher A. Casey. For more on the recent, limited scope agreements, see relevant CRS reports listed in the Appendix.

5 See CRS Report R45417, World Trade Organization: Overview and Future Direction, coordinated by Cathleen D. Cimino-Isaacs.

6 Section 125(b) of the Uruguay Round Agreements Act (P.L. 103-465) sets procedures for congressional disapproval of WTO participation. It specifies that Congress’s approval of the WTO agreement shall cease to be effective “if and only if” Congress enacts a joint resolution calling for withdrawal.

7 TPA lapsed for multiple years between 1994 and 2002 and between 2007 and 2015.

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

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congressional approval, or trade agreements that were signed, but not voted on by Congress, such as the Trans-Pacific Partnership.⁸

Table 2 provides final House and Senate votes on FTA implementing legislation.

Table 3 provides legislation and votes on U.S. membership to the WTO, specifically implementing legislation for multilateral agreements and resolutions calling for the United States to withdraw from the WTO.

Table 4 provides final House and Senate votes on TPA-related provisions. Votes are grouped by the trade agreement authority granted to the President.

For a selected list of CRS products on FTAs and TPA, see the Appendix.

Table 1. U.S. Free Trade Agreements and Trade Promotion Authority: A Timeline

(1985-2024April 15, 2025, in descending order by entry into force date)

U.S. Free

Trade

Agreement

Trade Agreement

Agreement

Signed

Signed

Implementing

Legislation

Legislation Signed by President

Agreement

Agreement Entered into

Force TPA^a USMCA^b

11/30/2018

1/29/2020

7/1/2020

Bipartisan Congressional Trade Priorities and Accountability Act of 2015

Colombia

11/22/2006

10/21/2011

5/15/2012

Trade Act of 2002

South Korea

6/30/2007

10/21/2011

3/15/2012

Trade Act of 2002

Panama

6/28/2007

10/21/2011

10/31/2012

Trade Act of 2002

Peru

4/12/2006

12/14/2007

2/1/2009

Trade Act of 2002

Oman

1/19/2006

9/26/2006

1/1/2009

Trade Act of 2002

Bahrain

9/14/2004

1/11/2006

1/11/2006

Trade Act of 2002

CAFTA-DR^c

Force TPA^a

USMCA^b 11/30/2018 1/29/2020 7/1/2020 Bipartisan Congressional Trade Priorities and Accountability Act of 2015

Colombia 11/22/2006 10/21/2011 5/15/2012 Trade Act of 2002

South Korea 6/30/2007 10/21/2011 3/15/2012 Trade Act of 2002

Panama 6/28/2007 10/21/2011 10/31/2012 Trade Act of 2002

Peru 4/12/2006 12/14/2007 2/1/2009 Trade Act of 2002

Oman 1/19/2006 9/26/2006 1/1/2009 Trade Act of 2002

Bahrain 9/14/2004 1/11/2006 1/11/2006 Trade Act of 2002

CAFTA-DR^c 5/28/2004

5/28/2004 (CAFTA);

8/5/2004 (DR)

8/2/2005 entered into

force by country

on a rolling basis,

2006-2009^d

Trade Act of 2002

Morocco

6/15/2004

8/17/2004

1/1/2006

Trade Act of 2002

Australia

5/18/2004

8/3/2004

1/1/2005

Trade Act of 2002

Chile

6/6/2003

9/3/2003

1/1/2004

Trade Act of 2002

Singapore

5/6/2003

9/3/2003

1/1/2004

Trade Act of 2002

Jordan

10/24/2000

9/28/2001

12/17/2001

Not considered under TPA

NAFTA^e

12/17/1992

12/8/1993

1/1/1994

Omnibus Trade and Competitiveness Act of 1988

Canada^f

1/2/1988

9/28/1988

1/1/1989

Trade and Tariff Act of 1984

Israel

4/22/1985

6/11/1985

8/19/1985

Trade and Tariff Act of 1984

Source: Compiled from the U.S. Trade Representative'Trade Act of 2002

Morocco 6/15/2004 8/17/2004 1/1/2006 Trade Act of 2002

Australia 5/18/2004 8/3/2004 1/1/2005 Trade Act of 2002

Chile 6/6/2003 9/3/2003 1/1/2004 Trade Act of 2002

Singapore 5/6/2003 9/3/2003 1/1/2004 Trade Act of 2002

Jordan 10/24/2000 9/28/2001 12/17/2001 Not considered under TPA

NAFTA^e 12/17/1992 12/8/1993 1/1/1994 Omnibus Trade and Competitiveness Act of 1988

Canada^f 1/2/1988 9/28/1988 1/1/1989 Trade and Tariff Act of 1984

Israel 4/22/1985 6/11/1985 8/19/1985 Trade and Tariff Act of 1984

8 For more information on recent limited-scope agreements see footnote 4. The Trans-Pacific Partnership (TPP) was a proposed FTA, signed by the United States and 11 other Asia-Pacific countries on Feb. 4, 2016. In Jan. 2017, the United States notified the other TPP signatories that it would not ratify the agreement, effectively ending TPP’s potential entry into force as written. The remaining TPP signatories made limited modifications to TPP after the U.S. withdrawal and signed a new agreement, the Comprehensive and Progressive Agreement for Trans-Pacific Partnership (CPTPP).

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

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Source: Compiled from the U.S. Trade Representative’s website, Congress.gov, Treaties in Force, Congressional Quarterly Almanac, and CRS Report RL33743, Trade Promotion Authority (TPA) and the Role of Congress in Trade Policy, by Cathleen D. Cimino-Isaacs and Christopher A. Casey. Notes: Also see CRS Infographic IG10001, Trade Promotion Authority (TPA) and U.S. Trade Agreements Timeline, by Christopher A. Casey and Cathleen D. Cimino-Isaacs. a. Trade Promotion Authority (TPA) is the legislation that grants the President authority to negotiate trade agreements for which implementing legislation may receive expedited treatment in Congress.

b. The U.S.-Mexico-Canada Trade Agreement (USMCA) superseded NAFTA.

c. CAFTA-DR (Dominican Republic-Central America-United States FTA) includes Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua, and the Dominican Republic.

d. CAFTA-DR entered into force on a rolling basis as the President certified each country’'s compliance with the agreement: El Salvador (March 1, 2006); Honduras and Nicaragua (April 1, 2006); Guatemala (July 1, 2006); the Dominican Republic (March 1, 2007); and Costa Rica (January 1, 2009).

e. NAFTA (the North American Free Trade Agreement) included Mexico and Canada, and was superseded by USMCA.

f. The U.S.-Canada FTA was superseded by NAFTA.

CRS-5

Table 2. Final Votes on Free Trade Agreement (FTA) Implementing Legislation

(Agreements (agreements listed by date FTA went into force (see Table 1.))

Congress

(Year) U.S. FTA Bill ))

Congress (Year)

U.S. FTA

Bill

Description of Bill

Final Votes

House

Senate

116^th (2020)

USMCA^a

H.R. 5430

Final Votes

House Senate

116^th (2020) USMCA^a H.R. 5430 FTA implementation act; enacted, P.L. 116-113. . 385-41 (Passed)

12/19/2019

89-10 (Passed) 01/16/2020

112^th (2011) Colombia H.R. 3078

Colombia

H.R. 3078

FTA implementation act; enacted, P.L. 112-42. 262-167. 262-167 (Passed)

10/12/2011

66-33 (Passed)

10/12/2011

110^th (2008) H.Res. 1092

H.Res. 1092

Resolution to suspend TPA consideration of Colombia FTA implementation bill in the 110^th Congress. (The Administration did not resubmit the Colombia FTA to Congress until the 112^th Congress.)

224-195 (Passed)

04/10/2008

n/a

n/a

112^th (2011) South Korea

South Korea

H.R. 3080 FTA implementation act; enacted, P.L. 112-41. 278-151. 278-151 (Passed)

10/12/2011

83-15 83-15 (Passed)

10/12/2011

112^th (2011) Panama H.R. 3079

Panama

H.R. 3079

FTA implementation act; enacted, P.L. 112-43. 300-129. 300-129 (Passed)

10/12/2011

77-22 77-22 (Passed)

10/12/2011

110^th (2007) Peru H.R. 3688

Peru

H.R. 3688

FTA implementation act; enacted, P.L. 110-138. 285-132. 285-132 (Passed)

11/08/2007

77-18 77-18 (Passed)

12/04/2007

109^th (2006) Oman H.R. 5684

Oman

H.R. 5684

FTA implementation act; enacted, P.L. 109-283. 221-205. 221-205 (Passed)

07/20/2006

62-32 62-32 (Passed)

09/19/2006

109^th (2006) S. 3569 FTA implementation act. — 60-34 (Passed)

06/29/2006

109^th (2006) Bahrain H.R. 4340

S. 3569

FTA implementation act.

—

60-34 (Passed)

06/29/2006

109^th (2006)

Bahrain

H.R. 4340

FTA implementation act; enacted, P.L. 109-169. 327-95. 327-95 (Passed)

12/07/2005

By Unanimous Consent.

12/13/2005

109^th (2005) CAFTA- DR^b

H.R. 3045 FTA implementation act; enacted, P.L. 109-53. 217-215. 217-215 (Passed)

07/28/2005

55-45 55-45 (Passed)

07/28/2005

109^th (2005) S. 1307 FTA implementation act. — 54-45 (Passed)

06/30/2005

CRS-6

Congress

(Year) U.S. FTA Bill Description of Bill

Final Votes

House Senate

108^th (2004) Morocco H.R. 4842

S. 1307

FTA implementation act.

—

54-45 (Passed)

06/30/2005

108^th (2004)

Morocco

H.R. 4842

FTA implementation act; enacted, P.L. 108-302. 323-99. 323-99 (Passed)

07/22/2004

By Unanimous Consent

07/22/2004

108^th (2004) S. 2677 FTA implementation act. — 85-13 (Passed)

07/21/2004

108^th (2004) Australia H.R. 4759

S. 2677

FTA implementation act.

—

85-13 (Passed)

07/21/2004

108^th (2004)

Australia

H.R. 4759

FTA implementation act; enacted, P.L. 108-286. 314-109. 314-109 (Passed)

07/14/2004

80-16 80-16 (Passed)

07/15/2004

108^th (2004) Chile H.R. 2738

Chile

H.R. 2738

FTA implementation act; enacted, P.L. 108-77. 270-156. 270-156 (Passed)

07/24/2003

65-32 65-32 (Passed)

07/31/2003

108^th (2003) S.Res. 211

S.Res. 211

A resolution expressing the sense of the Senate regarding provisions in the Chile and Singapore FTAs and immigration.

n/a By Unanimous Consent

07/31/2003

108^th (2003) Singapore H.R. 2739

Singapore

H.R. 2739

FTA implementation act; enacted, P.L. 108-78. 272-155. 272-155 (Passed)

07/24/2003

66-32 66-32 (Passed)

07/31/2003

108^th (2003) S.Res. 211

S.Res. 211

A resolution expressing the sense of the Senate regarding provisions in the Chile and Singapore FTAs on trade agreements and immigration.

n/a By Unanimous Consent

07/31/2003

107^th (2001) Jordan H.R. 2603

Jordan

H.R. 2603

FTA implementation act; enacted, P.L. 107-43. . Voice vote (Agreed)

07/31/2001

Voice vote (Agreed)

09/24/2001

103^rd (1993) NAFTA^c H.R. 3450 NAFTA^c

H.R. 3450

FTA implementation act; enacted, P.L. 103-182. 234-200. 234-200 (Passed)

11/17/1993

61-38 (Passed)

11/20/1993

100^th (1988) Canada^d H.R. 5090 Canada^d

H.R. 5090

FTA implementation act; enacted, P.L. 100-449. . 366-40 (Passed)

08/09/1988

83-9 (Passed)

09/19/1988

104^th (1996) Israel H.R. 3074

Israel

H.R. 3074

Amendments to the Israel FTA, enacted, P.L. 104-234. . Voice vote (Agreed)

04/16/1996

By Unanimous Consent

09/27/1996

CRS-7

Congress

(Year) U.S. FTA Bill Description of Bill

Final Votes

House Senate

99^th (1985) Israel H.R. 2268

99^th (1985)

Israel

H.R. 2268

FTA implementation act; enacted, P.L. 99-47. . 422-0 (Passed) 05/07/1985 Voice Vote (Agreed)

05/23/1985

Source: Compiled from Congress.gov and CQ Almanac. Notes: TPA=Trade Promotion Authority. For more detailed bill information, the bill numbers above link to Congress.gov, and the vote tallies link to the House and Senate roll call votes, where available. In a few examples (Oman, CAFTA-DR, Morocco), the Senate passed an implementing bill before the House version. The Senate later considered and passed the House version of the bill, as revenue-generating bills must originate in the House. The Senate bills that received a vote are included in the above table. a. USMCA, the U.S.-Mexico-Canada Trade Agreement, superseded NAFTA.

b. CAFTA-DR is the Dominican Republic-Central America-United States FTA, and includes Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua, and the Dominican Republic.

c. NAFTA, the North American Free Trade Agreement, included Mexico and Canada and was superseded by USMCA.

d. U.S.-Canada FTA was effectively superseded by NAFTA.

CRS-8

Table 3. U.S. Membership to the World Trade Organization (WTO): Legislation and Votes

(103^rd-118^119th Congress (1994-2024)

Congress P.L./Bill Type April 15, 2025))

Congress

P.L./Bill

Type

Description of Bill

Final Votes

House Senate

103^rd

House

Senate

103^rd

P.L. 103-465 ( (H.R. 5110)

Implementation act H.R. 5110)

Implementation act

Uruguay Round Agreements Act (Implementation act for WTO agreements).

288-146 (Passed)

11/29/1994

76-24 (Passed)

12/01/1994

116^th S.J.Res. 71 Proposed Withdrawal from WTO

119^th

H.J.Res. 93

Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

*

—

116^th

S.J.Res. 71

Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

— [no votes taken]

116^th H.J.Res. 89

—

[no votes taken]

116^th

H.J.Res. 89

Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

[no votes taken] —

109^th H.J.Res. 27

—

109^th

H.J.Res. 27

Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

86-338 86-338 (Failed)

06/09/2005

—

109^th H.Res. 304

—

109^th

H.Res. 304

Consideration of Proposed Withdrawal from WTO

Providing for consideration of the joint resolution (H.J.Res. 27) withdrawing the approval of the United States from the Agreement establishing the WTO.

Voice vote (Passed)

06/08/2005

n/a

106^th

H.J.Res. 90

n/a

106^th H.J.Res. 90 Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

56-363 56-363 (Failed)

06/21/2000

—

106^th H.Res. 528

—

106^th

H.Res. 528

Consideration of Proposed Withdrawal from WTO

Providing for consideration of the joint resolution (H.J.Res. 90) withdrawing the approval of the United States from the Agreement establishing the WTO.

343-61 343-61(Passed)

06/21/2000

n/a

106^th

n/a

106^th H.J.Res. 89 Proposed Withdrawal from WTO

Withdrawing the approval of the United States from the Agreement establishing the WTO.

[no votes taken] —

—

Source: Compiled from Congress.gov. Notes: Notes: *Measures in the current Congress, still under consideration. The Uruguay Round of the World Trade Organization (WTO) included a series of multilateral agreements that established the WTO and outlined trade rules and membership to the international organization. The President signed the Uruguay Round Agreements on April 15, 1994. Congress considered implementation legislation for the agreements under the TPA provisions in the Omnibus Trade and Competitiveness Act of 1988. The implementation act was signed into law on December 8, 1994, and the Uruguay Round Agreements went into force on January 1, 1995. Section 125(b) of the Uruguay Round Agreements Act (P.L. 103-465) sets procedures for congressional disapproval of WTO participation. It specifies that Congress’'s approval of the WTO agreements shall cease to be effective “"if and only if”" Congress enacts a joint resolution calling for withdrawal. Congress may vote every five years on withdrawal.

CRS-9

Table 4. Final Votes on Trade Promotion Authority (TPA) Provisions

((1974-2024)2025, legislation listed by date of vote)

Congress Bill

Congress

Bill

Name of Act or

Description

Description

Final Votes on TPA provisions Notes

House Vote Senate Vote

Notes

House Vote

Senate Vote

Votes related to the 2015 TPA grant

114^th

H.R. 2146

grant

114^th H.R. 2146

Bipartisan Congressional Trade Priorities and Accountability Act of 2015

218-208, (Passed) 6/18/2015 60-38, (Passed) 6/24/2015 Enacted, P.L. 114-26, 06/29/2015. Extends TPA to include the Trans-Pacific Partnership negotiations, USMCA, and other prospective FTAs. TPA provisions expired July 1, 2021.

114^th H.R. 1314

114^th

H.R. 1314

Bipartisan Budget Act of 2015

Measure considered under “"division of the question.”" Measure failed because while Title 1 (TPA) passed, Title II failed. Title 1 vote (on TPA): 219-211, 6/12/2015; Title II vote (on other issues): 126-302, 6/12/2015^a

Vote concerning TPA: 62-37, ,

(Passed) 5/22/2015^b

The TPA provisions in H.R. 1314 passed in the Senate, but failed in the House. An amendment identical to the Senate version of H.R. 1314 was then inserted into an unrelated bill, H.R. 2146 (see above).

Votes related to the 2002 TPA grant

110^th

H.Res. 1092

grant

110^th H.Res. 1092 Resolution to remove TPA consideration from the U.S.-Colombia FTA bill (H.R. 5724) in the 110th Congress

110^th Congress

224-195, (Agreed)

04/10/2008

n/a

n/a

This measure removed TPA consideration (granted through the TPA provisions in the Trade Act of 2002) from the U.S.- Colombia FTA (H.R. 5724) in the 110th110^th Congress. No further legislative action occurred in the 110th110^th Congress on H.R. 5724. The U.S.-Colombia FTA was not resubmitted to Congress until the 112th Congress.

107^th H.R. 3009 112^th Congress.

107^th

H.R. 3009

The Trade Act of 2002 215-212, (Passed) 7/27/2002 64-34, (Passed)

8/1/2002

Enacted, P.L. 107-210, 8/6/2002. Eleven FTAs were negotiated and considered in Congress under the TPA provisions in the Trade Act of 2002. See Table 1.

CRS-10

Congress Bill

Name of Act or

Description

Final Votes on TPA provisions Notes

House Vote Senate Vote

107^th H.Res. 450

107^th

H.Res. 450

H. Res. 450 Relating to consideration of H.R. 3009

216-215, (Agreed) 6/26/2002 n/a

n/a

A rule to expand the scope of H.R. 3009 (the Trade Act of 2002)

107^th H.R. 3005

107^th

H.R. 3005

Bipartisan Trade Promotion Authority Act of 2002

215-214, (Passed) 12/6/2001 n/a

n/a

TPA Lapse,, 1994-2002

105^th

H.R. 2621

1994-2002

105^th H.R. 2621 Reciprocal Trade Agreement Authorities Act of 1997

180-243, (Failed) 9/25/1998 n/a

n/a

Measure attempted to renew TPA. Measure failed. TPA lapsed between 1994 and 2002.

Votes related to the 1988 TPA grant

103^rd

H.R. 1876

grant

103^rd H.R. 1876 To extend fast-track procedures for Uruguay Round trade agreements

295-126, (Passed) 6/22/1993 76-16, (Passed) 6/30/1993 Enacted, P.L. 103-49, 7/2/1993. Amended the Omnibus Trade and Competitiveness Act of 1988 (see below) to extend TPA for the WTO Uruguay Round agreements.

102^nd S.Res. 78

102^nd

S.Res. 78

Resolution disapproving a two-year extension of fast- track procedures under the Omnibus Trade and Competitiveness Act of 1988.

n/a 36-59, (Failed) 5/24/1991 A failed attempt to deny a two-year extension of the TPA provisions in the Omnibus Trade and Competitiveness Act of 1988. Also see identical bill H.Res. 101.

102^nd H.Res. 101

102^nd

H.Res. 101

Resolution disapproving the extension of fast-track procedures to implement trade agreements entered into after May 31, 1991, and by May 31, 1993.

192-231, (Failed) 5/23/1991 n/a

n/a

Also see identical bill S. Res. 78 (above).

102^nd H.Res. 146

102^nd

H.Res. 146

Resolution concerning U.S. objectives of future trade agreements

329-85, (Passed) 5/23/1991 n/a

n/a

Bill attempted to emphasize that Congress could suspend fast track consideration if the Administration did not negotiate adequate protections for workers, industries, and the environment.

CRS-11

Congress Bill

Name of Act or

Description

Final Votes on TPA provisions Notes

House Vote Senate Vote

100^th H.R. 4848

100^th

H.R. 4848

Omnibus Trade and Competitiveness Act of 1988

376-45, (Passed) 7/13/1988 85-11, (Passed) 8/3/1988 Enacted, P.L. 100-418, 8/23/1988. Provided TPA consideration for NAFTA and the WTO Uruguay Round Agreements.

100^th H.R. 3

100^th

H.R. 3

Omnibus Trade and Competitiveness Act of 1987

312-107, (Passed)

04/21/1987;

(Vetoed by the President,

5/24/1988);

Motion to override

Presidential veto: 308-113,

(Passed) 5/24/1988

63-36, (Passed) 4/27/1988;

(Vetoed by the President,

5/24/1988)

Motion to override veto: 61-

37, (Failed) 6/8/1988

Measure failed over presidential veto. Provisions from H.R.3, concerning TPA, were reintroduced into H.R. 4848, which was enacted as P.L. 100-418 (see above).

100^th S. 1420

100^th

S. 1420

Omnibus Trade and Competitiveness Act of 1987

n/a Senate passed H.R. 3 in lieu

of this measure, by Yea-Nay

Vote of 71-27, 07/21/1987

See related bill H.R. 3, above.

Votes related to the 1984 TPA grant

98^th H.R. 3398

98^th

H.R. 3398

The Trade and Tariff Act of 1984

386–-1, (Passed) 10/9/1984 96-0, (Passed) 9/20/1984 Enacted, P.L. 98-573, 10/30/1984. Provided TPA consideration to the Canada and Israel FTAs.

98^th H.R. 5377

98^th

H.R. 5377

U.S. Israel Free Trade Area 416-6, (Passed) 10/3/1984 n/a

n/a

Text of bill was inserted into H.R.3398 3398, the Trade and Tariff Act of 1984 (see above). Outlined authority and negotiating priorities for the U.S.-Israel FTA.

Votes related to the 19791979 TPA grant

96^th

H.R. 4537

grant

96^th H.R. 4537 Trade Agreements Act of 1979

395-7, (Passed) 07/11/1979 90-4, (Passed) 07/23/1979 Enacted, P.L. 96-39, 07/26/1979.

CRS-12

Congress Bill

Name of Act or

Description

Final Votes on TPA provisions Notes

House Vote Senate Vote

Votes related to the 1974 TPA grant

93^rd H.R. 10710 Trade Act of 1974

Votes related to the 1974 TPA grant

93^rd

H.R. 10710

Trade Act of 1974

323-36, (Passed) 12/20/1974 72-4, (Passed) 12/20/1974 Enacted, P.L. 93-618, 01/03/1975.

Source: Compiled by CRS from Congress.gov. Notes: Bolded titles were enacted into law. For more detailed bill information, the bill numbers above link to Congress.gov. In addition to the current lapse in TPA, there were two notable lapses: between 1994 and 2002 and between 2007 and 2015. For more on TPA’'s history, see CRS Report RL33743, Trade Promotion Authority (TPA) and the Role of Congress in Trade Policy, by Cathleen D. Cimino-Isaacs and Christopher A. Casey. a. The measure was voted on in the House under a procedure known as “"division of the question,”" which requires separate votes on each component, but approval of both to pass. Title 1 concerning TPA passed the House; however, Title II, concerning trade adjustment assistance, failed. Thus, the measure failed, under “"division of the question.”" (House roll call votes on H.R. 1314: Title I (TPA): Roll no. 362, 6/12/2015; Title II: Roll no. 361, 6/12/2015.)

b. Roll call vote 193, 5/22/2015.

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

Congressional Research Service 13

Appendix. Selected CRS Reports

Trade Promotion Authority

CRS In Focus IF10038, Trade Promotion Authority (TPA), by Christopher A. Casey and Cathleen D. Cimino-Isaacs

CRS Infographic IG10001, Trade Promotion Authority (TPA) and U.S. Trade Agreements Timeline, by Christopher A. Casey and Cathleen D. Cimino-Isaacs

CRS Report R43491, Trade Promotion Authority (TPA): Frequently Asked Questions, by Cathleen D. Cimino-Isaacs, Christopher A. Casey, and Christopher M. Davis

CRS Report RL33743, Trade Promotion Authority (TPA) and the Role of Congress in Trade Policy, by Cathleen D. Cimino-Isaacs and Christopher A. Casey

CRS In Focus IF11400, Presidential Authority to Address Tariff Barriers in Trade Agreements, by Christopher A. Casey

CRS Report R47679, Congressional and Executive Authority Over Foreign Trade Agreements, by Christopher T. Zirpoli

CRS Report R44707, Presidential Authority over Trade: Imposing Tariffs and Duties, by Brandon J. Murrill

Free Trade Agreements: Selected Issues

CRS Report R45148, U.S. Trade Policy Primer: Frequently Asked Questions, coordinated by Cathleen D. Cimino-Isaacs (Seesee section “"Trade Agreements and Negotiations.”)

")

CRS In Focus IF10046, Worker Rights Provisions in Free Trade Agreements (FTAs), by Cathleen D. Cimino-Isaacs and M. Angeles Villarreal

CRS In Focus IF10972, Labor Enforcement Issues in U.S. FTAs, by Cathleen D. Cimino-Isaacs

CRS In Focus IF10166, Environmental Provisions in Free Trade Agreements (FTAs), by Richard K. Lattanzio and Christopher A. Casey

CRS In Focus IF10033, Intellectual Property Rights (IPR) and International TradeU.S. Trade Policy, by Shayerah I. Akhtar and Liana Wong

CRS In Focus IF10645, Dispute Settlement in the WTO and U.S. Trade Agreements, by Christopher A. Casey and Cathleen D. Cimino-Isaacs

Free Trade Agreements

CRS Report R44981, The United States-Mexico-Canada Agreement (USMCA), by M. Angeles Villarreal

CRS In Focus IF10997, U.S.-Mexico-Canada (USMCA) Trade Agreement, by M. Angeles Villarreal

CRS In Focus IF10047, North American Free Trade Agreement (NAFTA), by M. Angeles Villarreal

CRS In Focus IF10733, U.S.-South Korea (KORUS) FTA and Bilateral Trade Relations, by Liana Wong and Mark E. Manyin

Congressional Votes on Free Trade Agreements and Trade Promotion Authority

Congressional Research Service R45846 · VERSION 11 · UPDATED 14

CRS Report RL34470, The U.S.-Colombia Free Trade Agreement: Background and Issues, by M. Angeles Villarreal

CRS In Focus IF10394, Dominican Republic-Central America-United States Free Trade Agreement (CAFTA-DR), by M. Angeles Villarreal

Multilateral Trade Agreements

CRS In Focus IF10002, World Trade Organization, by Cathleen D. Cimino-Isaacs

Select Limited Scope Agreements

CRS In Focus IF12517, U.S.-Japan Critical Minerals Agreement, by Kyla H. Kitamura

CRS In Focus IF11120, U.S.-Japan Trade Agreements and Negotiations, by Cathleen D. Cimino- Isaacs and Kyla H. Kitamura

CRS In Focus IF12125, Section 301 and China: The U.S.-China Phase One Trade Deal, by Karen M. Sutter

CRS In Focus IF10256, U.S.-Taiwan Trade and Economic Relations, by Karen M. Sutter

Author Information

Keigh E. Hammond Senior Research Librarian

Disclaimer

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 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 connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you wish to copy or otherwise use copyrighted material.

Footnotes

1.	Article I, Section 8, of the U.S. Constitution authorizes Congress "To regulate Commerce with foreign Nations ... " and "To lay and collect Taxes, Duties, Imposts, and Excises.... " Article II, Section 2 authorizes the President, with the advice and consent of the Senate, to make treaties and appoint ambassadors. For more see CRS Report R47679, Congressional and Executive Authority Over Foreign Trade Agreements, by Christopher T. Zirpoli.
2.	Section 102 of the Trade Act of 1974, as amended.
3.	For more on Trade Promotion Authority see CRS In Focus IF10038, Trade Promotion Authority (TPA), by Christopher A. Casey and Cathleen D. Cimino-Isaacs.
4.	In the case of the first Taiwan agreement under the U.S.-Taiwan trade initiative, Congress passed P.L. 118-13 which provided ex-post approval of the agreement. The law also addressed congressional concerns that the President was negotiating trade agreements without congressional authority; set conditions for the agreement's entry into force, and set consultative requirements for future agreements under the U.S.-Taiwan trade initiative. For more on presidential authorities for limited scope trade agreements, see CRS Report R47679, Congressional and Executive Authority Over Foreign Trade Agreements, by Christopher T. Zirpoli, and CRS In Focus IF11400, Presidential Authority to Address Tariff Barriers in Trade Agreements, by Christopher A. Casey. For more on the recent, limited scope agreements, see relevant CRS reports listed in the Appendix.
5.	See CRS Report R45417, World Trade Organization: Overview and Future Direction, coordinated by Cathleen D. Cimino-Isaacs.
6.	Section 125(b) of the Uruguay Round Agreements Act (P.L. 103-465) sets procedures for congressional disapproval of WTO participation. It specifies that Congress's approval of the WTO agreement shall cease to be effective "if and only if" Congress enacts a joint resolution calling for withdrawal.
7.	TPA lapsed for multiple years between 1994 and 2002 and between 2007 and 2015.
8.	For more information on recent limited-scope agreements see footnote 4. The Trans-Pacific Partnership (TPP) was a proposed FTA, signed by the United States and 11 other Asia-Pacific countries on February 4, 2016. In January 2017, the United States notified the other TPP signatories that it would not ratify the agreement, effectively ending TPP's potential entry into force as written. The remaining TPP signatories made limited modifications to TPP after the U.S. withdrawal and signed a new agreement, the Comprehensive and Progressive Agreement for Trans-Pacific Partnership (CPTPP).