# Congressional Budget Resolutions: Historical Information > Briefs, arguments, decisions, and more. URL: https://www.frixlaw.com/law-library/documents/crs%3ARL30297 ## Record - **Collection:** Congressional research report - **Document type:** CRS Report - **Published:** November 16, 2015 - **Citation:** RL30297 ## Text Congressional Budget Resolutions: Historical Information ,name redacted, Analyst on Congress and the Legislative Process November 16, 2015 Congressional Research Service 7-.... www.crs.gov RL30297 Congressional Budget Resolutions: Historical Information Summary The Congressional Budget Act of 1974 (Titles I-IX of P.L. 93-344, as amended; 2 U.S.C. 601688) provides for the annual adoption of a concurrent resolution on the budget each year. The congressional budget resolution represents a budget plan for the upcoming fiscal year and at least the following four fiscal years. As a concurrent resolution, it is not presented to the President for his signature and thus does not become law. Instead, when adopted by Congress, the budget resolution serves as an agreement between the House and Senate on a congressional budget plan. As such, it provides the framework for subsequent legislative action on budget matters during each congressional session. In 32 of the 41 years under the Budget Act, Congress adopted at least one budget resolution for the fiscal year beginning in such year. Congress did not complete action on a budget resolution for nine fiscal years, most recently for FY2015. A second budget resolution for a fiscal year was adopted in each of the first seven years, and a third budget resolution was adopted in one year (for FY1977). Since 1982, Congress has considered only one budget resolution for each fiscal year. Congress initially was required to cover only the upcoming fiscal year in the budget resolution, but over the years Congress has expanded this time frame. Currently, the budget resolution must include at least five fiscal years. The budget resolution may include budget reconciliation directives instructing one or more committees to recommend legislative changes to meet the direct spending and revenue levels included in the budget resolution. In the past 41 years, Congress included budget reconciliation directives in 22 budget resolutions. Such directives have resulted in 24 budget reconciliation measures and the enactment of 20 of them. (Four budget reconciliation measures have been vetoed.) The House has considered and adopted fewer amendments to the budget resolution than the Senate. For the last three decades, the House has considered the budget resolutions under special rules that generally have made in order only amendments in the nature of a substitute. Since 1983, the House typically has considered between three and seven such amendments to the budget resolution each year, rejecting all but two of these. In contrast, during the period between 1975 and 2015, the Senate considered an average of almost 54 amendments per budget resolution, agreeing to an average of about 31 of these. The Budget Act sets April 15 as a target date for completing action on the annual budget resolution. (Prior to 1986, the date was May 15.) During the past 41 years, when Congress has completed action on a budget resolution, Congress adopted the budget resolution by the target date only six times, most recently in 2003 with the FY2004 budget resolution. Budget resolutions have been adopted an average of almost 36 days after the target date. This report will be updated as warranted. Congressional Research Service Congressional Budget Resolutions: Historical Information Contents Introduction ..................................................................................................................................... 1 Development and Content of the Budget Resolution ...................................................................... 8 Development of the Budget Resolution .................................................................................... 8 Content of the Budget Resolution ............................................................................................ 11 Consideration and Adoption of the Budget Resolution ................................................................. 18 Amendments to the Budget Resolution ................................................................................... 21 Amendments in the House ................................................................................................ 21 Amendments in the Senate................................................................................................ 27 Timing of Action on the Budget Resolution ........................................................................... 29 Tables Table 1. Congressional Budget Resolutions .................................................................................... 2 Table 2. U.S. Statutes-at-Large Citations of Budget Resolutions.................................................... 6 Table 3. Budget Resolutions Rejected in the House ........................................................................ 7 Table 4. Committee Reports to Budget Resolutions........................................................................ 8 Table 5. Number of Years Covered by Budget Resolutions ........................................................... 11 Table 6. Selected Components Included in Budget Resolutions Adopted by Congress ................ 13 Table 7. Budget Resolutions and Associated Reconciliation Acts ................................................ 16 Table 8. Special Rules Providing for the Consideration of Budget Resolutions in the House.......................................................................................................................................... 18 Table 9. Number of Amendments to Budget Resolutions Considered in the House ..................... 21 Table 10. Amendments in the Nature of a Substitute to Budget Resolutions Made in Order by a Special Rule in the House ........................................................................................ 23 Table 11. Number of Amendments to Budget Resolutions Considered in the Senate ................... 27 Table 12. Dates of Final Adoption of the Budget Resolution ........................................................ 29 Table 13. Timing of House Action on Budget Resolutions ........................................................... 30 Table 14. Timing of Senate Action on Budget Resolutions ........................................................... 33 Appendixes Appendix. Modifications to the Procedures and Requirements Pertaining to the Development, Content, and Consideration of the Budget Resolution ........................................ 36 Contacts Author Contact Information .......................................................................................................... 39 Acknowledgments ......................................................................................................................... 39 Key Policy Staff ............................................................................................................................ 39 Congressional Research Service Congressional Budget Resolutions: Historical Information Introduction The Congressional Budget Act of 1974 (Titles I-IX of P.L. 93-344, as amended; 2 U.S.C. 601688; hereafter referred to as the “Budget Act”) provides for the annual adoption of a concurrent resolution on the budget each year. The congressional budget resolution represents a budget plan for the upcoming fiscal year and at least the following four fiscal years. As a concurrent resolution, it is not presented to the President for his signature and thus does not become law. Instead, when adopted by Congress, the budget resolution serves as an agreement between the House and Senate on a congressional budget plan. As such, it provides the framework for subsequent legislative action on the annual appropriations bills, revenue measures, reconciliation legislation, and any other budgetary legislation. While the programmatic assumptions (i.e., the specific mix of revenue and spending policies that are assumed within the budget levels) are not binding, the totals and committee spending allocations may be enforced through points of order and through the budget reconciliation process (explained below). This report provides current and historical information on the budget resolution. It provides a list of the budget resolutions adopted and rejected by Congress since implementation of the Budget Act, including the U.S. Statutes-at-Large citations and committee report numbers, and describes their formulation and content. The report provides a table of selected optional components, a list of the budget reconciliation measures developed pursuant to directives contained in budget resolutions, and information on the number of years covered by budget resolutions. It also provides information on the consideration and adoption of budget resolutions, including an identification of the House special rules that provided for consideration of budget resolutions, the amendments in the nature of a substitute to the budget resolution considered in the House, the number and disposition of House and Senate amendments to budget resolutions, and dates of House and Senate action on budget resolutions. Congress has modified the congressional budget process several times since it was first established in 1974. The Appendix identifies laws, budget resolutions, and other resolutions that modified the procedures and requirements pertaining to the development, content, and consideration of the budget resolution. As originally enacted, the Budget Act provided for the annual adoption of two budget resolutions for each year.1 The first budget resolution, adopted in the spring, set nonbinding “targets” to guide the consideration of budgetary legislation. The second budget resolution, adopted in the fall (about two weeks before the beginning of the fiscal year), was intended to provide Congress, after considering and possibly completing action on specific budgetary legislation, the opportunity to either reaffirm or revise the budget levels in the first budget resolution. Additional budget resolutions, or revisions to the previous one, could be (and still can be) adopted at any time. The Balanced Budget and Emergency Deficit Control Act of 1985 (Title II of P.L. 99-177, 99 Stat. 1038-1101; hereafter referred to as the “Deficit Control Act”) eliminated the requirement for a second budget resolution beginning in 1986 (for the FY1987 budget resolution). For several preceding years, for FY1983-FY1986, Congress did not adopt a second budget resolution but instead included a provision in the first budget resolution that made the spending and revenue totals in it binding automatically as of the beginning of the fiscal year. 1 For a thorough review of the development and early implementation of the Budget Act, see Allen Schick, Congress and Money: Budgeting, Spending and Taxing (Washington, DC: Urban Institute, 1980). Congressional Research Service 1 Congressional Budget Resolutions: Historical Information During the 41 years under the Budget Act (1975 to the present), Congress has completed action on 40 budget resolutions, including in some years multiple budget resolutions for a single fiscal year. In 32 of the 41 years, Congress adopted at least one budget resolution for the fiscal year.2 Congress did not complete action on a budget resolution for nine fiscal years, most recently for FY2015.3 Congress also adopted a second budget resolution in seven of the 41 years.4 In 1977, Congress adopted a third budget resolution for FY1977, further revising the budget levels that fiscal year. Table 1 lists all budget resolutions adopted by Congress, with the House and Senate votes on initial passage and adoption of the conference report. It also includes, in italics, budget resolutions reported or considered in one chamber but not the other for those fiscal years that Congress did not complete action on a budget resolution. The U.S. Statutes-at-Large citations for budget resolutions adopted by Congress are listed in Table 2. (Although concurrent resolutions such as budget resolutions have no statutory authority, they are compiled in a special section of the U.S. Statutes-at-Large.) Table 3 lists the budget resolutions rejected in the House. No budget resolutions have been rejected in the Senate; however, the Senate rejected several motions to proceed to different budget resolutions in 2011 and 2012. Table 1. Congressional Budget Resolutions Initial Passage Congress Fiscal Year Budget Resolution (Companion Measure)a 94th 1976 1977 95th 1978 Conference Report Typea House Vote Senate Vote House Vote Senate Vote H.Con.Res. 218 (S.Con.Res. 32) first 200-196 69-22 230-193 voice H.Con.Res. 466 (S.Con.Res. 76) second 225-191 69-23 189-187 74-19 S.Con.Res. 109 (H.Con.Res. 611) first 221-155 62-22 224-170 65-29 S.Con.Res. 139 (H.Con.Res. 728) second 227-151 55-23 234-143 66-20 S.Con.Res. 10 (H.Con.Res. 110) third 239-169 72-20 226-173 voice S.Con.Res. 19 (H.Con.Res. 214) first 213-179 56-31 221-177 54-23 H.Con.Res. 341 (S.Con.Res. 43) second 199-188 63-21 215-187 68-21 2 In 2013, the House and Senate agreed to establish a “Congressional Budget” in statute as an alternative to the budget resolution for FY2014 (Subtitle B, Title I, of the Bipartisan Budget Act of 2013 [Div. A of P.L. 113-67, Dec. 26, 2013]). The statutory provisions are not in the form of a concurrent resolution as provided for in the Budget Act and therefore not treated as a budget resolution for purposes of this report. 3 In the absence of an agreement on the budget resolution, the House and Senate separately have agreed to “deeming resolution” provisions for budget enforcement purposes. For further information on “deeming resolution” provisions, see CRS Report RL31443, The “Deeming Resolution”: A Budget Enforcement Tool. 4 In two of these years (1979 for FY1980 and 1981 for FY1982), the House adopted the Senate version of the second budget resolution rather than adopting its own; therefore, the chambers did not need to resolve differences between different versions of the second budget resolution for those fiscal years in a conference committee or through an amendment exchange. Congressional Research Service 2 Congressional Budget Resolutions: Historical Information Initial Passage Congress 96th Fiscal Year Budget Resolution (Companion Measure)a 1979 Typea House Vote Senate Vote House Vote Senate Vote S.Con.Res. 80 (H.Con.Res. 559) first 201-197 64-27 201-198 voice H.Con.Res. 683 (S.Con.Res. 104) second 217-178 56-18 225-162 47-7 H.Con.Res. 107 (S.Con.Res. 22) first 220-184 64-20 202-196 72-17 S.Con.Res. 53 (H.Con.Res. 186)b second 206-186 57-20 — — H.Con.Res. 307 (S.Con.Res. 86) first 225-193c 241-174 68-28 205-195 61-26 H.Con.Res. 448 (S.Con.Res. 119) second 203-191 48-46 voice 50-38 H.Con.Res. 115 (S.Con.Res. 19) first 270-154 78-20 244-155 76-20 S.Con.Res. 50 (H.Con.Res. 230)d second 206-200 49-48 — — 1983 S.Con.Res. 92 (H.Con.Res. 352) — 219-206 49-43 210-208 51-45 1984 H.Con.Res. 91 (S.Con.Res. 27) — 229-196 50-49 239-186 51-43 1985 H.Con.Res. 280 (S.Con.Res. 106) — 250-168 41-34 232-162 voice 1986 S.Con.Res. 32 (H.Con.Res. 152) — 258-170 voice 309-119 67-32 1987 S.Con.Res. 120 (H.Con.Res. 337) — 245-179 70-25 333-43 voice 1988 H.Con.Res. 93 (S.Con.Res. 49) — voice 56-42 215-201 53-46 1989 H.Con.Res. 268 (S.Con.Res. 113) — 319-102 69-26 201-181 58-29 1990 H.Con.Res. 106 (S.Con.Res. 30) — 263-157 68-31 241-185 63-37 1991 H.Con.Res. 310 (S.Con.Res. 110) — 218-208 voice 250-164 66-33 1992 H.Con.Res. 121 (S.Con.Res. 29) — 261-163 voice 239-181 57-41 1993 H.Con.Res. 287 (S.Con.Res. 106) — 215-201e 224-191 voice 209-207 52-41 1994 H.Con.Res. 64 (S.Con.Res. 18) — 243-183 54-45 240-184 55-45 1995 H.Con.Res. 218 (S.Con.Res. 63) — 223-175 57-40 220-183 53-46 1980 1981 97th 98th 99th 100th 101st 102nd 103rd Conference Report 1982 Congressional Research Service 3 Congressional Budget Resolutions: Historical Information Initial Passage Congress Fiscal Year Budget Resolution (Companion Measure)a 104th 1996 105th 106th 107th 108th 109th 110th 111th 112th 113th 114th Conference Report Typea House Vote Senate Vote House Vote Senate Vote H.Con.Res. 67 (S.Con.Res. 13) — 238-193 57-42 239-194 54-46 1997 H.Con.Res. 178 (S.Con.Res. 57) — 226-195 53-46 216-211 53-46 1998 H.Con.Res. 84 (S.Con.Res. 27) — 333-99 78-22 327-97 76-22 1999f H.Con.Res. 284 (S.Con.Res. 86) — 216-204 57-41 — — 2000 H.Con.Res. 68 (S.Con.Res. 20) — 221-208 55-44 220-208 54-44 2001 H.Con.Res. 290 (S.Con.Res. 101) — 211-207 51-45 220-208 50-48 2002 H.Con.Res. 83 (no companion measure)g — 222-205 63-35 221-207 53-47 2003h H.Con.Res. 353 (S.Con.Res. 100) — 221-209 — — — 2004 H.Con.Res. 95 (S.Con.Res. 23) — 215-212 56-44 216-211 51-50 2005i S.Con.Res. 95 (H.Con.Res. 393) — 215-212 51-45 216-213 — 2006 H.Con.Res. 95 (S.Con.Res. 18) — 218-214 51-49 214-211 52-47 2007j H.Con.Res. 376 (S.Con.Res. 83) — 218-210 51-49 — — 2008 S.Con.Res. 21 (H.Con.Res. 99) — 216-210 52-47 214-209 52-40 2009 S.Con.Res. 70 (H.Con.Res. 312) — 212-207 51-44 214-210 48-45 2010 S.Con.Res. 13 (H.Con.Res. 85) — 233-196 55-43 233-193 53-43 2011k S.Con.Res. 60 (no companion measure) — — — — — 2012l H.Con.Res. 34 (no companion measure) — 235-193 — — — 2013m H.Con.Res. 112 (no companion measure) — 228-191 — — — 2014n S.Con.Res. 8 (H.Con.Res. 25) — 221-207 50-49 — — 2015o H.Con.Res. 96 (no companion measure) — 219-205 — — — 2016 S.Con.Res. 11 (H.Con.Res. 27) — 228-199 52-46 226-197 51-48 Source: Legislative Information System (LIS). Congressional Research Service 4 Congressional Budget Resolutions: Historical Information Notes: Congress did not complete action on the budget resolutions for the fiscal years in italics; for those years, the concurrent resolution listed was reported by the applicable budget committee and/or was considered by the applicable chamber. a. For purposes of this table, “type” refers to whether the budget resolution was the first, second, or third for the fiscal year. Originally, the Budget Act provided for the annual adoption of two budget resolutions for a fiscal year and the option of additional budget resolutions. In 1985, the act was amended to eliminate the second budget resolution; the option of additional budget resolutions remains. b. The House rejected its version of the budget resolution (see Table 3 of this report) and adopted the Senate’s version of the budget resolution; no conference report was necessary. c. The question was divided, with separate votes on Sections 1-5 and 7 and on Section 6 (revised FY1980 budget resolution). d. The House laid its version of the budget resolution on the table by unanimous consent and adopted the Senate’s version of the budget resolution; no conference report was necessary. e. The question was divided, with separate votes on Sections 1, 2, and 4 and on Section 3 (revised the spending and revenue levels if certain legislation was not enacted into law before conferees on the budget resolution were appointed). f. Congress did not complete action on the budget resolution for FY1999. In the absence of such budget resolution, the House agreed to H.Res. 477 on June 19, 1998, and H.Res. 5 on January 6, 1999, which provided that, among other things, the House-adopted FY1999 budget resolution (H.Con.Res. 284, 105th Congress) shall have “force and effect” as if it were adopted by Congress. Likewise, the Senate agreed to S.Res. 209 on April 2, 1998, and S.Res. 312 on October 21, 1998, which set forth budget levels enforceable as if they were included in a budget resolution agreed to by Congress. g. The Senate Budget Committee did not mark up or report a budget resolution for FY2002. Instead, the Senate considered the House-passed budget resolution after the Senate Budget Committee was discharged from its consideration. h. Congress did not complete action on the budget resolution for FY2003. In the absence of such budget resolution, the House agreed to H.Res. 428 on May 22, 2002, and H.Res. 5 on January 7, 2003, which provided that, among other things, the House-adopted FY2003 budget resolution (H.Con.Res. 353, 107th Congress) shall have “force and effect” as if it were adopted by Congress. The Senate did not take similar action in relation to the FY2003 budget resolution. i. Congress did not complete action on the budget resolution for FY2005. As indicated, the House agreed to the conference report to S.Con.Res. 95 (H.Rept. 108-498), but the Senate never considered it. In the absence of Senate action, the House agreed to H.Res. 649 (108th Congress) on May 19, 2004, and H.Res. 5 (109th Congress) on January 4, 2005, which provided that, among other things, the conference report to S.Con.Res. 95 (H.Rept. 108-498) shall have “force and effect” as if it was adopted by Congress. As for the Senate, Section 14007 of the Defense Appropriations Act, 2005 (P.L. 108-287), enacted on August 5, 2004, established enforceable FY2005 spending allocations for the Senate Appropriations Committee. j. Congress did not complete action on the budget resolution for FY2007. In the absence of such budget resolution, the House agreed to H.Res. 818, which provided that, among other things, the House-adopted FY2007 budget resolution (H.Con.Res. 376, 109th Congress) shall have “force and effect” as if it were adopted by Congress. As for the Senate, Section 7035 of the Emergency Supplemental Appropriations Act for Defense, the Global War on Terror, and Hurricane Recovery, 2006 (P.L. 109-234), enacted on June 15, 2006, established enforceable FY2007 spending allocations for the Senate Appropriations Committee. k. Congress did not complete action on the budget resolution for FY2011. In the absence of such budget resolution, the House agreed to a “budget enforcement resolution” (H.Res. 1493) on July 1, 2010, which provided through the end of the 111th Congress enforceable spending levels for FY2011, among other provisions. At the beginning of the 112th Congress, the House adopted a separate order in H.Res. 5 (Section 3(b)) that provided for the enforcement of budget levels submitted for printing in the Congressional Record by the chair of the House Budget Committee (HBC); in addition, on January 25, 2011, the House adopted H.Res. 38, directing the HBC chair to submit such allocations that assume “non-security spending at fiscal year 2008 levels or less.” The Senate did not take similar action in relation to the FY2011 budget resolution. l. Congress did not complete action on the budget resolution for FY2012. In the absence of such budget resolution, the House agreed to H.Res. 287 (112th Congress) on June 1, 2012, which provided that, among other things, the House-adopted FY2012 budget resolution (H.Con.Res. 34) shall have “force and effect” as if it were adopted by Congress. As for the Senate, Section 106 of the Budget Control Act of 2011 (P.L. 11225), enacted on August 2, 2011, provided for enforceable budget levels as an alternative to a FY2012 budget resolution. Congressional Research Service 5 Congressional Budget Resolutions: Historical Information m. n. o. Congress did not complete action on the budget resolution for FY2013. In the absence of such budget resolution, the House agreed to H.Res. 614 (112th Congress) on June 1, 2012 (amended by H.Res. 643 on May 8, 2012), and H.Res. 5 (113th Congress) on January 3, 2013, which provided that, among other things, the House-adopted FY2013 budget resolution (H.Con.Res. 112) shall have “force and effect” as if it were adopted by Congress. As for the Senate, Section 106 of the Budget Control Act of 2011 (P.L. 112-25), enacted on August 2, 2011, provided for enforceable budget levels as an alternative to a FY2013 budget resolution. Congress did not complete action on the budget resolution for FY2014. In lieu of such budget resolution, Subtitle B, Title I, of the Bipartisan Budget Act of 2013 (BBA, Div. A of P.L. 113-67), enacted on December 26, 2013, provided for enforceable budget levels and other procedural provisions as an alternative to a FY2014 budget resolution. Prior to the enactment of the BBA, the House agreed to H.Res. 243 (113th Congress) on June 4, 2013, which provided that, among other things, the House-adopted FY2014 budget resolution (H.Con.Res. 25) shall have “force and effect” as if it were adopted by Congress. The Senate had not taken any similar action prior to the enactment of the BBA. Congress did not complete action on the budget resolution for FY2015. In lieu of such budget resolution, Subtitle B, Title I, of the BBA of 2013 provided for enforceable budget levels and other procedural provisions as an alternative to a FY2015 budget resolution. Table 2. U.S. Statutes-at-Large Citations of Budget Resolutions Congress Fiscal Year Typea 94th 1976 first second H.Con.Res. 218 H.Con.Res. 466 89 Stat. 1197-1198 89 Stat. 1209-1210 1977 first second S.Con.Res. 109 S.Con.Res. 139 90 Stat. 3029-3030 90 Stat. 3044-3045 1977 third S.Con.Res. 10 91 Stat. 1666-1667 1978 first second S.Con.Res. 19 H.Con.Res. 341 91 Stat. 1670-1673 91 Stat. 1683-1684 1979 first second S.Con.Res. 80 H.Con.Res. 683 92 Stat. 3870-3872 92 Stat. 3878-3879 1980 first second H.Con.Res. 107 S.Con.Res. 53 93 Stat. 1413-1416 93 Stat. 1428-1433 1981 first second H.Con.Res. 307 H.Con.Res. 448 94 Stat. 3655-3668 94 Stat. 3680-3688 1982 first second H.Con.Res. 115 S.Con.Res. 50 95 Stat. 1743-1759 95 Stat. 1778 1983 — S.Con.Res. 92 96 Stat. 2647-2661 1984 — H.Con.Res. 91 97 Stat. 1501-1523 1985 — H.Con.Res. 280 98 Stat. 3484-3498 1986 — S.Con.Res. 32 99 Stat. 1941-1959 1987 — S.Con.Res. 120 100 Stat. 4354-4370 1988 — H.Con.Res. 93 101 Stat. 1986-2003 1989 — H.Con.Res. 268 102 Stat. 4875-4886 1990 — H.Con.Res. 106 103 Stat. 2540-2554 1991 — H.Con.Res. 310 104 Stat. 5163-5181 1992 — H.Con.Res. 121 105 Stat. 2414-2433 95th 96th 97th 98th 99th 100th 101st 102nd Congressional Research Service Budget Resolution U.S. Statutes-at-Large Citation 6 Congressional Budget Resolutions: Historical Information Congress 103rd 104th 105th 106th 107th 108th 109th 110th 111th 112th 113th 114th Fiscal Year Typea Budget Resolution U.S. Statutes-at-Large Citation 1993 — H.Con.Res. 287 106 Stat. 5165-5189 1994 — H.Con.Res. 64 107 Stat. 2508-2538 1995 — H.Con.Res. 218 108 Stat. 5075-5103 1996 — H.Con.Res. 67 109 Stat. 996-1030 1997 — H.Con.Res. 178 110 Stat. 4434-4482 1998 — H.Con.Res. 84 111 Stat. 2710-2760 1999 — 2000 — H.Con.Res. 68 113 Stat. 1968-1999 2001 — H.Con.Res. 290 114 Stat. 3139-3173 2002 — H.Con.Res. 83 115 Stat. 2486-2516 2003 — 2004 — 2005 — 2006 — 2007 — 2008 — S.Con.Res. 21 121 Stat. 2590-2633 2009 — S.Con.Res. 70 122 Stat. 5143-5190 2010 — S.Con.Res. 13 123 Stat. 3506-3550 2011 — — — 2012 — — — 2013 — — — 2014 — — — 2015 — — — 2016 — — — — — H.Con.Res. 95 117 Stat. 2910-2942 — — H.Con.Res. 95 119 Stat. 3633-3658 — — S.Con.Res. 11 Not available Source: U.S. Statutes-at-Large, various volumes. Notes: Although concurrent resolutions such as budget resolutions have no statutory authority, they are compiled in a special section of the U.S. Statutes-at-Large. In this table, no U.S. Statutes-at-Large citation indicates that Congress did not complete action the budget resolution for that fiscal year. a. For purposes of this table, “type” refers to whether the budget resolution was the first, second, or third for the fiscal year. Originally, the Budget Act provided for the annual adoption of two budget resolutions for a fiscal year and the option of additional budget resolutions. In 1985, the act was amended to eliminate the second budget resolution; the option of additional budget resolutions remains. Table 3. Budget Resolutions Rejected in the House Congress Fiscal Year 95th Budget Resolution Date Vote 1978 H.Con.Res. 195 04-27-1977 84-320 96th 1980 H.Con.Res. 186a 09-19-1979 192-213 97th 1983 H.Con.Res. 345 05-27-1982 159-265 99th 1987 H.Con.Res. 296 03-13-1986 12-312 Congressional Research Service 7 Congressional Budget Resolutions: Historical Information Congress Fiscal Year 101st 1991 104th 1996 Budget Resolution Date Vote H.Con.Res. 310 (conf. rept.)b 10-05-1990 179-254 H.Con.Res. 122 12-19-1995 0-412 Source: Legislative Information System (LIS). Notes: All budget resolutions listed were first budget resolutions, except for FY1980, which was a second budget resolution. The Senate has not rejected a budget resolution; however, the Senate rejected several motions to proceed to different budget resolutions in 2011 and 2012. a. The House subsequently adopted the Senate’s version of the second budget resolution for FY1980 (S.Con.Res. 53). b. After this conference report (H.Rept. 101-802) was rejected, another conference report to H.Con.Res. 310 (H.Rept. 101-820) was agreed to on October 8, 1990, by a vote of 250-164. Development and Content of the Budget Resolution Development of the Budget Resolution Following the submission of the President’s budget in January or February, Congress begins developing its budget resolution. The House and Senate Budget Committees are responsible for developing and reporting the budget resolution. Within six weeks after the President’s budget submission, each House and Senate committee is required to submit its “views and estimates” relating to budget matters under its jurisdiction to its Budget Committee (Section 301(d) of the Budget Act). These views and estimates, often submitted in the form of a letter to the chair and ranking Member of the Budget Committee, typically include comments on the President’s budget proposals and estimates of the budgetary impact of any legislation likely to be considered during the current session of Congress. The Budget Committees are not bound by these recommendations. The views and estimates often are printed in the committee report accompanying the resolution in the Senate or compiled in a separate committee print in the House. The budget resolution was designed to provide a framework to make budget decisions, leaving specific program determinations to the Appropriations Committees and other committees with spending and revenue jurisdiction. In many instances, however, particular program changes are considered when formulating the budget resolution. Program assumptions sometimes are referred to in the reports of the Budget Committees or may be discussed during floor action. Although these program changes are not binding, committees may be strongly influenced by these recommendations when formulating appropriations bills, reconciliation measures, or other budgetary legislation. Table 4 provides a list of the House, Senate, and conference reports to first budget resolutions reported or considered in either chamber. Table 4. Committee Reports to Budget Resolutions Fiscal Year 1976 Budget Resolution (Companion Measure) H.Con.Res. 218 S.Con.Res. 32 Congressional Research Service House Report Senate Report/Print H.Rept. 94-145 S.Rept. 94-77 Conference Report(s) H.Rept. 94-198 S.Rept. 94-113 8 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution (Companion Measure) House Report Senate Report/Print Conference Report(s) 1977 S.Con.Res. 109 (H.Con.Res. 611) H.Rept. 94-1030 S.Rept. 94-731 H.Rept. 94-1108 S.Rept. 94-805 1978 S.Con.Res. 19 (H.Con.Res. 214) H.Rept. 95-239 S.Rept. 95-90 H.Rept. 95-291 S.Rept. 95-134 1979 S.Con.Res. 80 (H.Con.Res. 559) H.Rept. 95-1055 S.Rept. 95-739 H.Rept. 95-1173 S.Rept. 95-866 1980 H.Con.Res. 107 (S.Con.Res. 22) H.Rept. 96-95 S.Rept. 96-68 H.Rept. 96-211 S.Rept. 96-192 1981 H.Con.Res. 307 (S.Con.Res. 86) H.Rept. 96-857 S.Rept. 96-654 H.Rept. 96-1051 S.Rept. 96-792 1982 H.Con.Res. 115 (S.Con.Res. 19) H.Rept. 97-23 S.Rept. 97-49 H.Rept. 97-46 S.Rept. 97-86 1983 S.Con.Res. 92 (H.Con.Res. 352) H.Rept. 97-597 S.Rept. 97-385 H.Rept. 97-614 S.Rept. 97-478 1984 H.Con.Res. 91 (S.Con.Res. 27) H.Rept. 98-41 S.Rept. 98-63 H.Rept. 98-248 S.Rept. 98-155 1985 H.Con.Res. 280 (S.Con.Res. 106) [none] S.Rept. 98-399 H.Rept. 98-1079 1986 S.Con.Res. 32 (H.Con.Res. 152) H.Rept. 99-133 S.Rept. 99-15 H.Rept. 99-249 1987 S.Con.Res. 120 (H.Con.Res. 337) H.Rept. 99-598 S.Rept. 99-264 H.Rept. 99-664 1988 H.Con.Res. 93 (S.Con.Res. 49) [none] [none] H.Rept. 100-175 S.Rept. 100-76 1989 H.Con.Res. 268 (S.Con.Res. 113) H.Rept. 100-523 S.Rept. 100-311 H.Rept. 100-658 1990 H.Con.Res. 106 (S.Con.Res. 30) H.Rept. 101-42 S.Rept. 101-20 H.Rept. 101-50 1991 H.Con.Res. 310 (S.Con.Res. 110) H.Rept. 101-455 [none] H.Rept. 101-820 1992 H.Con.Res. 121 (S.Con.Res. 29) H.Rept. 102-32 S.Rept. 102-40 H.Rept. 102-69 1993 H.Con.Res. 287 (S.Con.Res. 106) H.Rept. 102-450 [none] H.Rept. 102-529 1994 H.Con.Res. 64 (S.Con.Res. 18) H.Rept. 103-31 S.Rept. 103-19 H.Rept. 103-48 1995 H.Con.Res. 218 (S.Con.Res. 63) H.Rept. 103-428 S.Rept. 103-238 H.Rept. 103-490 1996 H.Con.Res. 67 (S.Con.Res. 13) H.Rept. 104-120 S.Rept. 104-82 H.Rept. 104-159 1997 H.Con.Res. 178 (S.Con.Res. 57) H.Rept. 104-575 S.Rept. 104-271 H.Rept. 104-612 1998 H.Con.Res. 84 (S.Con.Res. 27) H.Rept. 105-100 Congressional Research Service [none] H.Rept. 105-116 9 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution (Companion Measure) House Report Senate Report/Print Conference Report(s) 1999 H.Con.Res. 284 (S.Con.Res. 86) H.Rept. 105-555 S.Rept. 105-170 — 2000 H.Con.Res. 68 (S.Con.Res. 20) H.Rept. 106-73 S.Rept. 106-27 H.Rept. 106-91 2001 H.Con.Res. 290 (S.Con.Res. 101) H.Rept. 106-530 S.Rept. 106-251 H.Rept. 106-577 2002 H.Con.Res. 83 (no companion measure)a H.Rept. 107-26 2003 H.Con.Res. 353 (S.Con.Res. 100) H.Rept. 107-376 S.Rept. 107-141 2004 H.Con.Res. 95 (S.Con.Res. 23) H.Rept. 108-37 S.Prt. 108-19 H.Rept. 108-71 2005 S.Con.Res. 95 (H.Con.Res. 393) H.Rept. 108-441 S.Prt. 108-365 H.Rept. 108-498 2006 H.Con.Res. 95 (S.Con.Res. 18) H.Rept. 109-17 S.Prt. 109-18 H.Rept. 109-62 2007 H.Con.Res. 376 (S.Con.Res. 83) H.Rept. 109-402 S.Prt. 109-57 — 2008 S.Con.Res. 21 (H.Con.Res. 99) H.Rept. 110-69 S.Prt. 110-19 H.Rept. 110-153 2009 S.Con.Res. 70 (H.Con.Res. 312) H.Rept. 110-543 S.Prt. 110-39 H.Rept. 110-659 2010 S.Con.Res. 13 (H.Con.Res. 85) H.Rept. 111-60 S.Prt. 111-16 H.Rept. 111-89 2011 S.Con.Res. 60 (no companion measure) — S.Prt. 111-45 — 2012 H.Con.Res. 34 (no companion measure) H.Rept. 112-58 — — 2013 H.Con.Res. 112 (no companion measure) H.Rept. 112-421 — — 2014 S.Con.Res. 8 (H.Con.Res. 25) H.Rept. 113-17 S.Prt. 113-12 — 2015 H.Con.Res. 96 (no companion measure) H.Rept. 113-403 — — 2016 S.Con.Res. 11 (H.Con.Res. 27) H.Rept. 114-47 S.Prt. 114-14 H.Rept. 114-96 [none] H.Rept. 107-60 — Source: Legislative Information System (LIS). Notes: This list includes first budget resolutions only. In this table, no conference report listed indicates that Congress did not complete action on the budget resolution for that fiscal year. a. The Senate Budget Committee did not mark up or report a budget resolution for FY2002. Instead, after the Senate began consideration of the House-passed budget resolution, the SBC chair offered an amendment in the nature of a substitute. Congressional Research Service 10 Congressional Budget Resolutions: Historical Information Content of the Budget Resolution Section 301(a) of the Budget Act requires that the budget resolution include the following matters for the upcoming fiscal year and at least the ensuing four fiscal years:     Aggregate levels of new budget authority, outlays, the budget surplus or deficit, and the public debt; Aggregate levels of federal revenues and the amount, if any, by which the aggregate levels of federal revenues should be increased or decreased by legislative action; Amounts of new budget authority and outlays for each of the major functional categories; and For purposes of Senate enforcement procedures, Social Security outlays and revenues (although these amounts are not included in the budget surplus or deficit totals due to their off-budget status). Originally, the Budget Act mandated that budget resolutions cover only the upcoming fiscal year beginning on October 1 (referred to as the budget year). A desire to use the budget resolution as a tool for budget planning and other factors prompted Congress to expand this time frame to include the upcoming fiscal year as well as the two ensuing fiscal years. Congress used the authority provided by the elastic clause of the Budget Act to adopt three-year budget resolutions for the period covering the second budget resolution for FY1980 through the FY1986 budget resolution. The practice of including three fiscal years was formalized by the 1985 Deficit Control Act. The Budget Enforcement Act (BEA) of 1990 (Title XIII of P.L. 101-508, Omnibus Budget Reconciliation Act of 1990, 104 Stat. 1388-573-1388 through 630) temporarily extended to five fiscal years the period the budget resolution is required to cover. The 1990 BEA provision originally covered five-year periods beginning in FY1991 and continuing through FY1995; this provision was extended to cover the FY1996 through FY1998 budget resolutions in 1993 (Title XIV of P.L. 103-66, Omnibus Budget Reconciliation Act of 1993, 107 Stat. 683-685). As an integral part of Congress’s goal of achieving a balanced budget by FY2002, the FY1996 and FY1997 budget resolutions covered seven and six fiscal years, respectively. The Budget Enforcement Act of 1997 (Title X of P.L. 105-33, Balanced Budget Act of 1997, 111 Stat. 677712) amended the Budget Act to require permanently that a budget resolution cover the budget year and at least the four ensuing fiscal years (for a minimum of five fiscal years). Table 5 provides information regarding the number of years covered by the budget resolutions agreed to by Congress. Congress also may revise budget levels for the current year in the budget resolution pursuant to Section 304 of the Budget Act. Congress has adopted 15 first budget resolutions that revised current-year budget levels. Table 5. Number of Years Covered by Budget Resolutions Fiscal Year Budget Resolution Fiscal Year(s) Covered Current Fiscal Year Revision Number of Years Covered, Excluding Current Year 1976 H.Con.Res. 218 1976 — 1 1977 S.Con.Res. 109 1976-1977 1976 1 Congressional Research Service 11 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Fiscal Year(s) Covered Current Fiscal Year Revision Number of Years Covered, Excluding Current Year 1978 S.Con.Res. 19 1978 — 1 1979 S.Con.Res. 80 1979 — 1 1980 H.Con.Res. 107 1979-1980 1979 1 1981 H.Con.Res. 307 1980-1983 1980 3 1982 H.Con.Res. 115 1981-1984 1981 3 1983 S.Con.Res. 92 1982-1985 1982 3 1984 H.Con.Res. 91 1983-1986 1983 3 1985 H.Con.Res. 280 1984-1987 1984 3 1986 S.Con.Res. 32 1985-1988 1985 3 1987 S.Con.Res. 120 1987-1989 — 3 1988 H.Con.Res. 93 1988-1990 — 3 1989 H.Con.Res. 268 1989-1991 — 3 1990 H.Con.Res. 106 1990-1992 — 3 1991 H.Con.Res. 310 1991-1995 — 5 1992 H.Con.Res. 121 1991-1996 1991 5 1993 H.Con.Res. 287 1993-1997 — 5 1994 H.Con.Res. 64 1994-1998 — 5 1995 H.Con.Res. 218 1995-1999 — 5 1996 H.Con.Res. 67 1996-2002 — 7 1997 H.Con.Res. 178 1997-2002 — 6 1998 H.Con.Res. 84 1998-2002 — 5 — — — 1999 — 2000 H.Con.Res. 68 2000-2009 — 10 2001 H.Con.Res. 290 2000-2005 2000 5 2002 H.Con.Res. 83 2001-2011 2001 10 — — — 2003-2013 2003 10 — — — 2005-2010 2005 5 — — — 2003 2004 2005 2006 2007 — H.Con.Res. 95 — H.Con.Res. 95 — 2008 S.Con.Res. 21 2007-2012 2007 5 2009 S.Con.Res. 70 2008-2013 2008 5 2010 S.Con.Res. 13 2009-2014 2009 5 2011 — — — — 2012 — — — — Congressional Research Service 12 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Fiscal Year(s) Covered Current Fiscal Year Revision Number of Years Covered, Excluding Current Year 2013 — — — — 2014 — — — — 2015 — — — — 2016-2025 — 10 2016 S.Con.Res. 11 Sources: U.S. Statutes-at-Large, various volumes, and reports to accompany the budget resolutions. Notes: This list includes first budget resolutions only. In addition, it includes budget resolutions adopted by both chambers; that is, it does not include budget resolutions adopted by only one chamber. In addition to the content required by the Budget Act, Section 301(b) lists several other matters that may be included in the budget resolution. Table 6 provides a table indicating selected components included in first budget resolutions for FY1976-FY2016 on which Congress completed action (i.e., the House and Senate agreed). Table 6. Selected Components Included in Budget Resolutions Adopted by Congress Fiscal Year Budget Resolution Budget Reconciliation Directives Credit Levels Number of Reserve Fund Provisionsa Number of Declaratory Statementsb Number of Procedural Provisionsc 1976 H.Con.Res. 218 — — 0 0 0 1977 S.Con.Res. 109 — — 0 0 0 1978 S.Con.Res. 19 — — 0 1 0 1979 S.Con.Res. 80 — — 0 0 0 1980 H.Con.Res. 107 — — 0 0 0 1981 H.Con.Res. 307 X X 0 3 1 1982 H.Con.Res. 115 X X 0 2 1 1983 S.Con.Res. 92 X X 0 3 6 3 3 1984 H.Con.Res. 91 X X 1d 1985 H.Con.Res. 280 — X 0 1 3 1986 S.Con.Res. 32 X X 0 7 2 1987 S.Con.Res. 120 X X 2 8 1 1988 H.Con.Res. 93 X X 3 3 4 1989 H.Con.Res. 268 — X 3 3 1 1990 H.Con.Res. 106 X X 2 2 1 1991 H.Con.Res. 310 X X 1 0 1 1992 H.Con.Res. 121 — X 5 2 3 1993 H.Con.Res. 287 — X 5 8 4 1994 H.Con.Res. 64 X X 7 29 4 1995 H.Con.Res. 218 — X 13 14 4 Congressional Research Service 13 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Budget Reconciliation Directives Credit Levels Number of Reserve Fund Provisionsa Number of Declaratory Statementsb Number of Procedural Provisionsc 1996 H.Con.Res. 67 X X 2 14 5 1997 H.Con.Res. 178 X X 3 39 3 1998 H.Con.Res. 84 X X 10 40 3 1999 — — — — — — 2000 H.Con.Res. 68 X — 7 22 3 2001 H.Con.Res. 290 X — 11 44 13 2002 H.Con.Res. 83 X — 9 14 5 2003 — — — — — — 2004 H.Con.Res. 95 X — 8 16 5 2005 — — — — — — 2006 H.Con.Res. 95 X — 10 8 6 2007 — — — — — — 2008 S.Con.Res. 21 X — 23 17 9 2009 S.Con.Res. 70 — — 56 13 8 2010 S.Con.Res. 13 X — 48 9 11 2011 — — — — — — 2012 — — — — — — 2013 — — — — — — 2014e — — — — — — 2015f — — — — — — X — 131 19 29 2016 S.Con.Res. 11 Sources: U.S. Statutes-at-Large, various volumes, and reports to accompany the budget resolutions. Notes: This list includes first budget resolutions on which Congress completed action only. a. For purposes of this table, “reserve fund” provisions refer to any provision establishing procedures to revise budget levels—except adjustments to discretionary spending limits—for certain legislation or if some condition is met. b. Declaratory statements express, in non-binding terms, the sense of the Congress, the sense of the House, or the sense of the Senate on various issues. c. Some examples of the procedural provisions include deferred enrollment; automatic second budget resolutions; special budgetary treatment of certain activities, such as the sale of government assets; and more recently, enforcement of pay-as-you-go rules in the Senate and limits on advance appropriations. The number of procedural provisions does not include reconciliation instructions or reserve fund provisions. d. The FY1984 budget resolution provided for a single deficit-neutral reserve fund for all legislative initiatives included in the Manager’s Statement. e. In lieu of the budget resolution, Section 111 of the Bipartisan Budget Act of 2013 (BBA, Div. A of P.L. 11367), enacted on December 26, 2013, provided for enforceable budget levels and other provisions associated with the FY2014 budget resolution. Several procedural provisions, including reserve fund provisions, contained in the separate FY2014 budget resolutions adopted by each chamber were made to have force and effect. For further information, see the text of H.Con.Res. 25 and S.Con.Res. 8 (113th Congress). f. In lieu of the budget resolution, Sections 115 and 116 of the Bipartisan Budget Act of 2013 (BBA, Div. A of P.L. 113-67), enacted on December 26, 2013, provided for enforceable budget levels and other provisions associated with the FY2015 budget resolution. Several procedural provisions—including reserve fund Congressional Research Service 14 Congressional Budget Resolutions: Historical Information provisions, updated by one fiscal year—contained in the separate FY2014 budget resolutions adopted by each chamber were made to have force and effect. For further information, see the text of H.Con.Res. 25 and S.Con.Res. 8 (113th Congress). The most important of the optional matters is arguably the inclusion of budget reconciliation directives provided by Section 310 of the Budget Act. Budget reconciliation is an optional twostep process Congress may use to bring direct spending, revenue, and debt limit levels into compliance with those set forth in budget resolutions.5 In order to accomplish this, Congress first includes budget reconciliation directives in a budget resolution directing one or more committees in each chamber to recommend changes in statute to achieve the levels of direct spending, revenues, debt limit, or a combination thereof agreed to in the budget resolution. The legislative language recommended by committees then is packaged “without any substantive revision” into one or more budget reconciliation bills as set forth in the budget resolution by the House and Senate Budget Committees. In some instances, a committee may be required to report its legislative recommendations directly to its chamber. Once the Budget Committees (or individual committees if so directed) report budget reconciliation legislation to their respective chambers, consideration is governed by special procedures.6 These special rules serve to limit what may be included in budget reconciliation legislation, to prohibit certain amendments, and to encourage its completion in a timely fashion. During the 41-year period since the congressional budget process was established, Congress has included budget reconciliation directives to House and Senate committees in 22 budget resolutions.7 Such directives have resulted in 24 budget reconciliation measures. On four occasions (in 1982, 1986, 1997, and 2006), Congress adopted two budget reconciliation measures in one year. Of the 24 budget reconciliation measures considered by Congress, 20 were signed into law and four were vetoed. Table 7 lists the budget resolutions that contained budget reconciliation directives and the associated reconciliation acts. 5 For a more detailed discussion of the budget reconciliation process, see CRS Report RL33030, The Budget Reconciliation Process: House and Senate Procedures. 6 For a brief summary of these procedures, see CRS Report 98-814, Budget Reconciliation Legislation: Development and Consideration, Budget Reconciliation Legislation: Development and Consideration. 7 The number (21) of budget resolutions containing budget reconciliation directives includes the FY1976 second budget resolution (H.Con.Res. 466) and therefore is not included in Table 5. There has been an ongoing controversy about whether the directive in this budget resolution was a budget reconciliation directive as set forth in Section 310 of the Congressional Budget Act. The Senate treated it as such and considered the resultant legislation (H.R. 5559, as reported by the Senate Finance Committee, 94th Congress) under the budget reconciliation procedures. The House did not, however, consider and adopt its version of the resultant legislation as a budget reconciliation measure, and thus it presumably did not consider the directive as a budget reconciliation directive. See Floyd M. Riddick and Alan S. Frumin, Riddick’s Senate Procedure: Precedents and Practices (rev. ed.), S.Doc. 101-28, 101st Cong., 1st sess. (Washington: GPO, 1992), pp. 622-623. The legislation subsequently was adopted by the Senate and House but was vetoed by the President. For further information on these directives, see (1) CRS Congressional Distribution Memorandum, Reconciliation Directives to House Committees in Budget Resolutions for FY1976-FY2005; and (2) CRS Congressional Distribution Memorandum, Reconciliation Directives to Senate Committees in Budget Resolutions for FY1976-FY2005 (available from the author). Congressional Research Service 15 Congressional Budget Resolutions: Historical Information Table 7. Budget Resolutions and Associated Reconciliation Acts Fiscal Years Covered by Reconciliation Directives Fiscal Year Budget Resolution 1976 H.Con.Res. 466a 1976 Revenue Adjustment Act of 1975 (H.R. 5559) 12-17-1975 (vetoed) 1981 H.Con.Res. 307 1980-1981b Omnibus Reconciliation Act of 1980 (P.L. 96-499) 12-05-1980 1982 H.Con.Res. 115 1981-1984c Omnibus Budget Reconciliation Act of 1981 (P.L. 97-35) 08-13-1981 1983 S.Con.Res. 92 1983-1985 Tax Equity and Fiscal Responsibility Act of 1982 (P.L. 97-248) Omnibus Budget Reconciliation Act of 1982 (P.L. 97-253) 09-03-1982 09-08-1982 1984 H.Con.Res. 91 1984-1986 Omnibus Budget Reconciliation Act of 1983 (P.L. 98-270) 04-18-1984 1986 S.Con.Res. 32 1986-1988 Consolidated Omnibus Budget Reconciliation Act of 1985 (P.L. 99-272) 04-07-1986 1987 S.Con.Res. 120 1987-1989 Omnibus Budget Reconciliation Act of 1986 (P.L. 99-509) 10-21-1986 1988 H.Con.Res. 93 1988-1990 Omnibus Budget Reconciliation Act of 1987 (P.L. 100-203) 12-22-1987 1990 H.Con.Res. 106 1990 (Senate) 1990-1991 (House) Omnibus Budget Reconciliation Act of 1989 (P.L. 101-239) 12-19-1989 1991 H.Con.Res. 310 1991-1995 Omnibus Budget Reconciliation Act of 1990 (P.L. 101-508) 11-05-1990 1994 H.Con.Res. 64 1994-1998 Omnibus Budget Reconciliation Act of 1993 (P.L. 103-66) 08-10-1993 1996 H.Con.Res. 67 1996-2002 Balanced Budget Act of 1995 (H.R. 2491) 12-06-1995 (vetoed) 1997 H.Con.Res. 178 1997-2002 Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (P.L. 104-193) 08-22-1996 1998 H.Con.Res. 84 1998-2002 Balanced Budget Act of 1997 (P.L. 105-33) Taxpayer Relief Act of 1997 (P.L. 105-34) 08-05-1997 08-05-1997 2000 H.Con.Res. 68 2000-2009 Taxpayer Refund and Relief Act of 1999 (H.R. 2488) 09-23-1999 (vetoed) 2001 H.Con.Res. 290 2001-2005 Marriage Tax Relief Reconciliation Act of 2000 (H.R. 4810) 08-05-2000 (vetoed) 2002 H.Con.Res. 83 2001-2011 Economic Growth and Tax Relief Reconciliation Act of 2001 (P.L. 107-16) 07-07-2001 2004 H.Con.Res. 95 2003-2013 Jobs and Growth Tax Relief Reconciliation Act of 2003 (P.L. 108-27) 05-28-2003 Congressional Research Service Associated Reconciliation Acts Date Enacted (or Vetoed) 16 Congressional Budget Resolutions: Historical Information Fiscal Years Covered by Reconciliation Directives Fiscal Year Budget Resolution 2006 H.Con.Res. 95 2005-2010 2006-2010 Deficit Reduction Act of 2005 (P.L. 109-171) Tax Increase Prevention and Reconciliation Act of 2005 (P.L. 109-222) 02-08-2006 05-17-2006 2008 S.Con.Res. 21 2007-2012 College Cost Reduction and Access Act (P.L. 110-84) 09-27-2007 2010 S.Con.Res. 13 2009-2014 Health Care and Education Reconciliation Act of 2010 (P.L. 111-152) 03-30-2010 Associated Reconciliation Acts Date Enacted (or Vetoed) Sources: U.S. Statutes-at-Large, various volumes, and the Legislative Information System (LIS). For further information on budget reconciliation measures, see CRS Report RL33030, The Budget Reconciliation Process: House and Senate Procedures. Notes: Each budget resolution listed was the first, or sole, budget resolution for the fiscal year, except for FY1976, which was the second budget resolution for that year. a. There has been an ongoing controversy about whether the directive in this budget resolution was a budget reconciliation directive as set forth in Section 310 of the Congressional Budget Act of 1974. The Senate treated it as such and considered the resultant legislation (H.R. 5559, as reported by the Senate Finance Committee, 94th Congress) under the budget reconciliation procedures. The House did not, however, consider and adopt its version of the resultant legislation as a budget reconciliation measure, and thus it presumably did not consider the directive as a budget reconciliation directive. See Floyd M. Riddick and Alan S. Frumin, Riddick’s Senate Procedure: Precedents and Practices (rev. ed.), S.Doc. 101-28, 101st Cong., 1st sess. (Washington: GPO, 1992), pp. 622-623. b. The House and Senate Appropriations Committees were instructed in the budget resolution to submit legislation (e.g., rescissions of previously enacted appropriations) to reduce spending for FY1980. c. The Senate Appropriations Committee was instructed in the budget resolution to submit legislation to reduce spending for FY1981 (budget authority and outlays) and FY1982-1984 (outlays only). Beginning with the FY1981 budget resolution, Congress also included amounts for federal credit activities. The 1985 Balanced Budget Act permanently required the inclusion of aggregate and functional levels of direct loan obligations and primary loan guarantee commitments in budget resolutions. The inclusion of federal credit levels, however, was made optional by the Budget Enforcement Act of 1997 (Title X of P.L. 105-33; 111 Stat. 677-712). Of the 31 first budget resolutions adopted by Congress, 18 included federal credit amounts. Another optional component of budget resolutions has been the inclusion of reserve funds. The reserve fund provisions generally provide for the revision of budget resolution aggregates, functional allocations, and committee allocations if certain deficit-neutral legislation is enacted or some other condition is met. Over the last decade, Congress often has included several reserve funds in budget resolutions (as indicated in Table 6). For instance, the FY2016 budget resolution (S.Con.Res. 11, 114th Congress) included 131 reserve funds. As an indication of policy intent, Congress has often included declaratory statements in budget resolutions. These nonbinding statements express the sense of Congress, the sense of the House, or the sense of the Senate on various issues. As indicated in Table 6, Congress has included an average of 21 declaratory statements in the last 14 budget resolutions (not including budget resolutions for fiscal years on which the House and Senate separately adopted but did not agree) but an average of only between two and three declaratory statements in the first 18 budget resolutions. The annual budget resolution also may require a deferred enrollment procedure (see Section 301(b)(3) of the Budget Act), under which all or certain bills providing new budget authority or Congressional Research Service 17 Congressional Budget Resolutions: Historical Information new entitlement authority for the upcoming fiscal year cannot be enrolled until Congress has completed action on a reconciliation measure (or, prior to FY1987, a reconciliation measure or the second budget resolution). Budget resolutions for FY1981, FY1982, FY1983, and FY1984 contained deferred enrollment provisions.8 Lastly, Congress has included several other procedural provisions in budget resolutions. Under Section 301(b)(4) of the Budget Act, the so-called elastic clause, Congress may “set forth such other matters, and require such other procedures, relating to the budget, as may be appropriate to carry out the purposes of” the Budget Act in the budget resolution. The number of procedural provisions included in budget resolutions is listed in the last column of Table 6. Some of these procedural provisions include deferred enrollment; automatic second budget resolutions; special budgetary treatment of certain activities, such as the sale of government assets; and more recently, enforcement of a pay-as-you-go requirement in the Senate and limits on advance appropriations. Consideration and Adoption of the Budget Resolution Floor consideration of the budget resolution differs in the House and Senate. Section 305 of the Budget Act sets forth special procedures for the consideration of the budget resolution, generally to expedite its consideration. The House, however, regularly adopts a special rule, a simple House resolution, setting forth the terms for consideration of the measure. In particular, special rules have been used for more than a decade to limit the offering of amendments to a few major substitutes. Table 8 lists the special rules that provided for the consideration of budget resolutions in the House. In contrast, floor consideration in the Senate is governed by the procedures set forth in the Budget Act. The procedures generally limit debate and prohibit certain amendments and motions.9 Table 8. Special Rules Providing for the Consideration of Budget Resolutions in the House Fiscal Year Special Rule Budget Resolution Date Special Rule Was Adopteda Vote 1976 [none] H.Con.Res. 218 — — 1977 [none] H.Con.Res. 611 — — H.Res. 515 [none] H.Con.Res. 195b H.Con.Res. 214 04-26-1977 — 400-1 — 1979 [none] H.Con.Res. 559 — — 1980 [none] H.Con.Res. 107 — — 1981 H.Res. 642 H.Res. 649c H.Con.Res. 307 H.Con.Res. 307 04-23-1980 04-30-1980 261-143 voice 1982 H.Res. 134 H.Con.Res. 115 04-30-1981 328-76 1978 8 The FY1983 budget resolution exempted legislation dealing with certain trust funds from its deferred enrollment provision. 9 For a brief discussion of these procedures, see CRS Report 98-511, Consideration of the Budget Resolution. Congressional Research Service 18 Congressional Budget Resolutions: Historical Information Fiscal Year Special Rule Budget Resolution Date Special Rule Was Adopteda Vote 1983 H.Res. 447 H.Res. 496 H.Con.Res. 345b H.Con.Res. 352 05-21-1982 06-10-1982 voice 339-72 1984 H.Res. 144 H.Res. 243 H.Con.Res. 91 H.Con.Res. 91 (conf. rept.) 03-22-1983 06-23-1983 230-187 voice 1985 H.Res. 476 H.Con.Res. 280 04-04-1984 302-89 1986 H.Res. 177 H.Res. 253 H.Con.Res. 152 S.Con.Res. 32 (conf. rept.) 05-22-1985 08-01-1985 273-141 voice 1987 H.Res. 397 H.Res. 455 H.Con.Res. 296b H.Con.Res. 337 03-13-1986 05-14-1986 239-168 voice 1988 H.Res. 139 H.Res. 201 H.Con.Res. 93 H.Con.Res. 93 (conf. rept.) 04-08-1987 06-23-1987 241-168 voice 1989 H.Res. 410 H.Res. 461 H.Con.Res. 268 H.Con.Res. 268 (conf. rept.) 03-23-1988 05-26-1988 voice voice 1990 H.Res. 145 H.Con.Res. 106 05-03-1989 voice 1991 H.Res. 382 H.Res. 488 H.Res. 496d H.Con.Res. 310 H.Con.Res. 310b (conf. rept.) H.Con.Res. 310 (conf. rept.) 04-26-1990 10-04-1990 10-06-1990 voice 339-94 285-105 1992 H.Res. 123 H.Res. 157 H.Con.Res. 121 H.Con.Res. 121 (conf. rept.) 04-16-1991 05-22-1991 392-9 257-164 1993 H.Res. 386 H.Res. 463 H.Con.Res. 287 H.Con.Res. 287 (conf. rept.) 03-04-1992 05-21-1992 239-183 253-160 1994 H.Res. 131 H.Res. 133e H.Res. 145 H.Con.Res. 64 H.Con.Res. 64 H.Con.Res. 64 (conf. rept.) 03-17-1993 03-18-1993 03-31-1993 voice 251-172 250-172 1995 H.Res. 384 H.Res. 418 H.Con.Res. 218 H.Con.Res. 218 (conf. rept.) 03-10-1994 05-05-1994 245-171 228-168 1996 H.Res. 149 H.Res. 175 H.Res. 309 H.Con.Res. 67 H.Con.Res. 67 (conf. rept.) H.Con.Res. 122b 05-17-1995 06-29-1995 12-19-1995 225-168 234-180 229-189 1997 H.Res. 435 H.Res. 450 H.Con.Res. 178 H.Con.Res. 178 (conf. rept.) 05-16-1996 06-12-1996 227-196 232-190 1998 H.Res. 152 H.Res. 160 H.Con.Res. 84 H.Con.Res. 84 (conf. rept.) 05-20-1997 06-05-1997 278-142 373-47 1999 H.Res. 455 H.Con.Res. 284 06-04-1998 216-197 Congressional Research Service 19 Congressional Budget Resolutions: Historical Information Fiscal Year Special Rule Budget Resolution Date Special Rule Was Adopteda Vote 2000 H.Res. 131 H.Res. 137 H.Con.Res. 68 H.Con.Res. 68 (conf. rept.) 03-25-1999 04-14-1999 228-194 221-205 2001 H.Res. 446 H.Res. 474 H.Con.Res. 290 H.Con.Res. 290 (conf. rept.) 03-23-2000 04-13-2000 228-194 221-205 2002 H.Res. 100 H.Res. 134f H.Res. 136 H.Con.Res. 83 H.Con.Res. 83 (conf. rept.) H.Con.Res. 83 (conf. rept.) 03-28-2000 05-08-2001 05-09-2001 282-130 409-1 218-208 2003 H.Res. 372 H.Con.Res. 353 03-05-2002 222-206 2004 H.Res. 151 H.Res. 191 H.Con.Res. 95 H.Con.Res. 95 (conf. rept.) 03-20-2003 04-11-2003 voice 221-202 2005 H.Res. 574 H.Res. 649 H.Con.Res. 393 S.Con.Res. 95 (conf. rept.) 03-25-2004 05-19-2004 voice 220-204 2006 H.Res. 154 H.Res. 248 H.Con.Res. 95 H.Con.Res. 95 (conf. rept.) 03-16-2005 04-28-2005 228-196 voice 2007 H.Res. 766g H.Res. 817 H.Con.Res. 376 H.Con.Res. 376 04-06-2006 05-17-2006 225-196 226-193 2008 H.Res. 275h H.Res. 409 H.Con.Res. 99 S.Con.Res. 21 (conf. rept.) 03-28-2007 05-17-2007 229-197 225-194 2009 H.Res. 1036i H.Res. 1214 H.Con.Res. 312 S.Con.Res. 70 (conf. rept.) 03-12-2008 05-21-2008 223-195 220-199 2010 H.Res. 305j H.Res. 316 H.Res. 371 H.Con.Res. 85 H.Con.Res. 85 S.Con.Res. 13 (conf. rept.) 04-01-2009 04-02-2009 04-28-2009 234-179 242-182 234-185 2011k — — — — 2012 H.Res. 223 H.Con.Res. 34 04-14-2011 243-181 2013 H.Res. 597 H.Con.Res. 112 03-28-2012 241-184 2014 H.Res. 122 H.Con.Res. 25 03-19-2013 224-189 2015 H.Res. 544 H.Con.Res. 96 04-08-2014 222-194 2016 H.Res. 163 H.Con.Res. 27 03-24-2015 237-180 Source: Legislative Information System (LIS). Notes: A special rule is a simple resolution reported by the House Rules Committee to provide for consideration of legislation by the House. This list includes first budget resolutions only. a. No special rules were rejected. b. The budget resolution was rejected. (See Table 3 in this report.) c. The special rule provided for technical corrections of H.Res. 642. Congressional Research Service 20 Congressional Budget Resolutions: Historical Information d. e. f. g. h. i. j. k. The special rule provided for consideration of a revised conference report (H.Rept. 101-820); the original conference report (H.Rept. 101-802) was rejected. (See Table 3 in this report.) The special rule provided for further consideration of H.Con.Res. 64. The special rule provided for the recommittal of the conference report to the conference committee; two pages reportedly were missing from the original printed conference report (H.Rept. 107-55). H.Res. 766 provided for debate only. The House also considered and adopted H.Res. 370, which provided for the consideration of S.Con.Res. 21, as amended by the text of H.Con.Res. 99, as adopted by the House, in order to facilitate a conference with the Senate on S.Con.Res. 21. The House adopted H.Res. 370 by a vote of 221-197 on May 8, 2007. The House also considered and adopted H.Res. 1190, which provided for the consideration of S.Con.Res. 70, as amended by the text of H.Con.Res. 312, as adopted by the House, in order to facilitate a conference with the Senate on S.Con.Res. 70. The House adopted H.Res. 1190 by a vote of 214-203 on May 14, 2008. H.Res. 305 provided for debate only. The House did not consider a budget resolution for FY2011. However, in lieu of the budget resolution, the House agreed to a special rule (H.Res. 1500) that, upon its adoption, provided for the adoption of a “budget enforcement resolution” (H.Res. 1493). Amendments to the Budget Resolution Amendments in the House The House has considered an average of almost seven amendments per budget resolution.10 The largest number of amendments considered was 45 in 1979; the largest number agreed to was 11 also in 1979. (The first FY1983 budget resolution also was amended 11 times, but it subsequently was rejected.) Table 9 identifies the number of accepted and rejected amendments to budget resolutions considered in the House. The amending activity in the House during the last few decades is in marked contrast to the early years under the Budget Act. During the first eight years, the House considered an average of 16 amendments per budget resolution, agreeing to an average of four of them. In contrast, during the past 33 years, the House has considered very few amendments to budget resolutions, averaging between two and three per budget resolution and agreeing to even fewer of these. Of the 121 amendments considered by the House during this time period, 5 have been adopted. Table 9. Number of Amendments to Budget Resolutions Considered in the House Amendmentsa Fiscal Year Budget Resolution Adopted Rejected Total Success Rateb 1976 H.Con.Res. 218 3 3 6 50% 1977 H.Con.Res. 611 2 14 16 13% 1978 H.Con.Res. 195c H.Con.Res. 214 6 2 10 6 16 8 60% 25% 1979 H.Con.Res. 559 3 13 16 19% 1980 H.Con.Res. 107 11 34 45 24% 1981 H.Con.Res. 307 1 10 11 9% 10 The averages presented in this section are derived from all first budget resolutions considered on the House floor, including those ultimately rejected by the House. Congressional Research Service 21 Congressional Budget Resolutions: Historical Information Amendmentsa Fiscal Year Budget Resolution Adopted Rejected Total Success Rateb 1982 H.Con.Res. 115 2 2 4 50% 1983 H.Con.Res. 345c H.Con.Res. 352 11 1 27 1 38 2 29% 50% 1984 H.Con.Res. 91 0 0 0 — 1985 H.Con.Res. 280 0 7 7 0% 1986 H.Con.Res. 152 1 6 7 14% 1987 H.Con.Res. 296c H.Con.Res. 337 0 0 0 3 0 3 — 0% 1988 H.Con.Res. 93 1 3 4 25% 1989 H.Con.Res. 268 0 3 3 0% 1990 H.Con.Res. 106 1 4 5 20% 1991 H.Con.Res. 310 0 3 3 0% 1992 H.Con.Res. 121 1 3 4 25% 1993 H.Con.Res. 287 0 3 3 0% 1994 H.Con.Res. 64 0 3 3 0% 1995 H.Con.Res. 218 0 4 4 0% 1996 H.Con.Res. 67 H.Con.Res. 122c 0 0 3 0 3 0 0% — 1997 H.Con.Res. 178 0 3 3 0% 1998 H.Con.Res. 84 0 5 5 0% 1999 H.Con.Res. 284 0 2 2 0% 2000 H.Con.Res. 68 0 3 3 0% 2001 H.Con.Res. 290 0 5 5 0% 2002 H.Con.Res. 83 0 4 4 0% 2003 H.Con.Res. 353 0 0 0 — 2004 H.Con.Res. 95 0 4 4 0% 2005 H.Con.Res. 393 0 4 4 0% 2006 H.Con.Res. 95 0 4 4 0% 2007 H.Con.Res. 376 0 3 3 0% 2008 H.Con.Res. 99 0 3 3 0% 2009 H.Con.Res. 312 0 3 3 0% 2010 H.Con.Res. 85 0 4 4 0% 2011d — — — — — 2012 H.Con.Res. 34 0 4 4 0% 2013 H.Con.Res. 112 0 6 6 0% 2014 H.Con.Res. 25 0 5 5 0% 2015 H.Con.Res. 96 0 5 5 0% Congressional Research Service 22 Congressional Budget Resolutions: Historical Information Amendmentsa Fiscal Year Budget Resolution Adopted Rejected Total Success Rateb 2016 H.Con.Res. 27 1 5 6 17% Source: Legislative Information System (LIS). Notes: This list includes first budget resolutions only. The number of amendments in this table does not include any amendments automatically agreed to upon the adoption of the special rule reported by the House Rules Committee providing for the consideration of the budget resolution. a. No amendments were withdrawn or ruled out of order. b. “Success rate” is the percentage of amendments accepted. c. The budget resolution was rejected. (See Table 3 in this report.) d. The House did not consider a budget resolution for FY2011. Contributing to this trend, the House special rule typically has allowed for consideration of only amendments in the nature of a substitute to the budget resolution. For example, between 1983 and 2015 (for the FY1984-FY2016 budget resolutions), 117 of the 121 amendments to the budget resolution made in order by the special rule were amendments in the nature of a substitute. Only two of these 117 amendments in the nature of a substitute were agreed to; those two contained the budget resolution text recommended by the House Budget Committee offered by its chair at the time, Representative William H. Gray III and Representative Tom Price, respectively. Table 10 lists the amendments in the nature of a substitute to the budget resolution made in order by the special rule. Table 10. Amendments in the Nature of a Substitute to Budget Resolutions Made in Order by a Special Rule in the House Fiscal Year Budget Resolution Amendment Sponsor Date Vote Disposition 1976 H.Con.Res. 218a — — — — 1977 H.Con.Res. 611a — — — — 1978 H.Con.Res. 195b H.Con.Res. 214a — — — — — — — — 1979 H.Con.Res. 559a — — — — 1980 H.Con.Res. 107a — — — — 1981 H.Con.Res. 307 Obey Ottinger Holt Rousselot Latta 04-30-1980 04-30-1980 05-01-1980 05-06-1980 05-06-1980 201-213 70-336 164-246 191-218 175-242 rejected rejected rejected rejected rejected 1982 H.Con.Res. 115 Fauntroy Obey Latta 05-06-1981 05-06-1981 05-07-1981 69-356 119-303 253-176 rejected rejected adopted 1983 H.Con.Res. 345c Miller (CA) Obey Fauntroy Rousselot Latta Aspin Jones (OK) 05-24-1982 05-24-1982 05-24-1982 05-25-1982 05-27-1982 05-27-1982 05-27-1982 181-225 152-268 86-322 182-242 192-235 137-289 171-253 rejected rejected rejected rejected rejected rejected rejected Congressional Research Service 23 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Amendment Sponsor Date Vote Disposition H.Con.Res. 352 Latta Jones (OK) 06-10-1982 06-10-1982 220-207 202-225 adopted rejected 1984 H.Con.Res. 91 Lattad — — — 1985 H.Con.Res. 280 Wirth Dannemeyer Roemer Dixon McHugh MacKay Latta 04-04-1984 04-04-1984 04-04-1984 04-05-1984 04-05-1984 04-05-1984 04-05-1984 1-401 51-354 59-338 76-333 132-284 108-310 107-311 rejected rejected rejected rejected rejected rejected rejected 1986 H.Con.Res. 152 Dannemeyer Pursell Leland Latta 05-22-1985 05-22-1985 05-22-1985 05-23-1985 39-382 87-335 54-361 102-329 rejected rejected rejected rejected 1987 H.Con.Res. 296e — — — — H.Con.Res. 337 Dannemeyer Leland Latta 05-15-1986 05-15-1986 05-15-1986 73-338 61-359 145-280 rejected rejected rejected 1988 H.Con.Res. 93 Gray (PA) Gray (PA) Dannemeyer Dymally 04-09-1987 04-09-1987 04-09-1987 04-09-1987 230-192 27-394 47-369 56-362 adopted rejected rejected rejected 1989 H.Con.Res. 268 Dannemeyer Porter Penny 03-23-1988 03-23-1988 03-23-1988 75-347 64-354 27-394 rejected rejected rejected 1990 H.Con.Res. 106 Dannemeyer Dellums Kasich Gephardt 05-04-1989 05-04-1989 05-04-1989 05-04-1989 72-350 81-343 30-393 49-373 rejected rejected rejected rejected 1991 H.Con.Res. 310 Kasich Dannemeyer Dellums 04-26-1990 04-26-1990 05-01-1990 106-305 48-354 90-334 rejected rejected rejected 1992 H.Con.Res. 121 Dannemeyer Kasich Gradison 04-17-1991 04-17-1991 04-17-1991 79-332 114-303 89-335 rejected rejected rejected 1993 H.Con.Res. 287 Dannemeyer Gradison Towns 03-04-1992 03-04-1992 03-05-1992 60-344 42-370 77-342 rejected rejected rejected 1994 H.Con.Res. 64 Kasich Solomon Mfume 03-18-1993 03-18-1993 03-18-1993 135-295 20-409 87-335 rejected rejected rejected 1995 H.Con.Res. 218 Frank (MA) Solomon Mfume Kasich 03-10-1994 03-10-1994 03-11-1994 03-11-1994 105-313 73-342 81-326 165-243 rejected rejected rejected rejected Congressional Research Service 24 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Amendment Sponsor Date Vote Disposition 1996 H.Con.Res. 67 Gephardt Neumann Payne (NJ) 05-18-1995 05-18-1995 05-18-1995 100-325 89-342 56-367 rejected rejected rejected H.Con.Res. 122f — — — — 1997 H.Con.Res. 178 Payne (NJ) Orton Sabo 05-16-1996 05-16-1996 05-16-1996 63-362 130-295 117-304 rejected rejected rejected 1998 H.Con.Res. 84 Doolittle Brown (CA) Waters Kennedy (MA) Shuster 05-21-1997 05-21-1997 05-21-1997 05-21-1997 05-21-1997 119-313 91-339 72-358 123-306 214-216 rejected rejected rejected rejected rejected 1999 H.Con.Res. 284 Neumann Spratt 06-05-1998 06-05-1998 158-262 164-257 rejected rejected 2000 H.Con.Res. 68 Coburn Minge Spratt 03-25-1999 03-25-1999 03-25-1999 2-426 134-295 173-250 rejected rejected rejected 2001 H.Con.Res. 290 Owens DeFazio Stenholm Sununu Spratt 03-23-2000 03-23-2000 03-23-2000 03-23-2000 03-23-2000 70-348 61-351 171-243 78-339 184-233 rejected rejected rejected rejected rejected 2002 H.Con.Res. 83 Kucinich Stenholm Flake Spratt 03-28-2001 03-28-2001 03-28-2001 03-28-2001 79-343 204-221 81-341 183-243 rejected rejected rejected rejected 2003 H.Con.Res. 353 — — — — 2004 H.Con.Res. 95 Hill Toomey Cummings Spratt 03-20-2003 03-20-2003 03-20-2003 03-20-2003 174-254 80-342 85-340 192-236 rejected rejected rejected rejected 2005 H.Con.Res. 393 Cummings Stenholm Hensarling Spratt 03-25-2004 03-25-2004 03-25-2004 03-25-2004 119-302 183-243 116-309 194-232 rejected rejected rejected rejected 2006 H.Con.Res. 95 Hensarling Watt Spratt 03-17-2005 03-17-2005 03-17-2005 102-320 134-292 165-264 rejected rejected rejected 2007 H.Con.Res. 376 Watt Hensarling Spratt 05-17-2006 05-18-2006 05-18-2006 131-294 94-331 184-241 rejected rejected rejected 2008 H.Con.Res. 99 Kilpatrick Woolsey Ryan 03-29-2007 03-29-2007 03-29-2007 115-312 81-340 160-268 rejected rejected rejected 2009 H.Con.Res. 312 Kilpatrick Lee (CA) Ryan (WI) 03-13-2008 03-13-2008 03-13-2008 126-292 98-322 157-263 rejected rejected rejected Congressional Research Service 25 Congressional Budget Resolutions: Historical Information Fiscal Year Budget Resolution Amendment Sponsor Date Vote Disposition 2010 H.Con.Res. 85 Woolsey Jordan (OH) Lee (CA) Ryan (WI) 04-02-2009 04-02-2009 04-02-2009 04-02-2009 84-348 111-322 113-318 137-293 rejected rejected rejected rejected 2011g — — — — — 2012 H.Con.Res. 34 Cleaver Cooperh Grijalva Garrett Van Hollen 04-15-2011 — 04-15-2011 04-15-2011 04-15-2011 103-303 — 77-347 119-136 (172 present) 166-259 rejected — rejected rejected rejected 2013 H.Con.Res. 112 Mulvaney Cleaver Cooper Honda Garrett Van Hollen 03-28-2012 03-28-2012 03-28-2012 03-28-2012 03-29-2012 03-29-2012 0-414 107-314 38-382 78-346 136-285 163-262 rejected rejected rejected rejected rejected rejected 2014 H.Con.Res. 25 Mulvaney Scott (VA) Grijalva Woodall Van Hollen 03-20-2013 03-20-2013 03-20-2013 03-20-2013 03-20-2013 154-261 105-305 (1 present) 84-327 (1 present) 104-132 (171 present) 165-253 rejected rejected rejected rejected rejected 2015 H.Con.Res. 96 Mulvaney Moore Grijalva Woodall Van Hollen 04-09-2014 04-09-2014 04-09-2014 04-10-2014 04-10-2014 2-413 116-300 89-327 133-291 163-261 rejected rejected rejected rejected rejected 2016 H.Con.Res. 27 Ellison Butterfield Stutzman Van Hollen Price (GA) Price (GA) 03-25-2015 03-25-2015 03-25-2015 03-25-2015 03-25-2015 03-25-2015 96-330 120-306 132-294 160-264 105-319 219-208 rejected rejected rejected rejected rejected adopted Source: Legislative Information System (LIS). Notes: See Table 8 for a list of special rules providing for consideration of budget resolutions in the House. An amendment in the nature of a substitute strikes all text after the resolving clause and replaces it with a different text. This list includes first budget resolutions only. Text of the amendments may be found in the Congressional Record and the report accompanying the special rule. a. The budget resolution was not considered under a special rule. b. The budget resolution was considered under an open rule (H.Res. 515); no specific amendments in the nature of a substitute were made in order. H.Con.Res. 195 was rejected. (See Table 3 in this report.) c. H.Con.Res. 345 was rejected. (See Table 3 in this report.) d. The special rule (H.Res. 144) made in order an amendment in the nature of a substitute by, and if offered by, Representative Latta, but he did not offer one. e. The budget resolution was considered under a closed rule (H.Res. 397). H.Con.Res. 296 was rejected. (See Table 3 in this report.) f. The budget resolution was considered under a closed rule (H.Res. 309). H.Con.Res. 122 was rejected. (See Table 3 in this report.) g. The House did not consider a budget resolution for FY2011. h. The special rule (H.Res. 223) made in order an amendment in the nature of a substitute by, and if offered by, Representative Cooper, but he did not offer one. Congressional Research Service 26 Congressional Budget Resolutions: Historical Information Amendments in the Senate In the Senate, the terms of debate and the consideration of amendments are not structured by a special rule, as in the House, but instead are governed by the procedures set forth in Section 305(b) of the Budget Act. Typically, the Senate considers many amendments to the budget resolution, most addressing specific issues instead of proposing a complete substitute as in the House. During the period between 1975 and 2015, the Senate considered an average of almost 54 amendments per budget resolution, agreeing to an average of 31 of these.11 The largest number of amendments considered was 254 in 2015; the largest number agreed to was 146, also in 2015. Table 11 identifies the number of amendments adopted, rejected, ruled out-of-order, and withdrawn during Senate consideration of budget resolutions. In contrast to the House, the number of amendments considered by the Senate has increased over the last two decades or so. For the last 18 budget resolutions considered on the floor, for example, the Senate considered an average of almost 90 amendments per budget resolution, agreeing to an average of over 56 of these. Amendments have been agreed to in the Senate at a much higher rate compared to the House as well. For instance, in 13 of the past 18 years in which a budget resolution was considered on the floor, the success rate for amendments has equaled or exceeded 60%. Table 11. Number of Amendments to Budget Resolutions Considered in the Senate Amendments Fiscal Year Budget Resolution Adopted (RC) Rejected (RC) Fell on Point of Order (RC) 1976 S.Con.Res. 32 1 (0) 4 (4) 0 0 5 (4) 20% 1977 S.Con.Res. 109 1 (0) 7 (7) 0 0 8 (7) 13% 1978 S.Con.Res. 19 5 (3) 2 (2) 0 0 7 (5) 71% 1979 S.Con.Res. 80 0 10 (10) 0 0 10 (10) 0% 1980 S.Con.Res. 22 5 (4) 12 (12) 0 0 17 (16) 29% 1981 S.Con.Res. 86 12 (6) 30 (28) 0 0 42 (34) 29% 1982 S.Con.Res. 9b 4 (1) 31 (31) 1 (1) 5 41 (33) 10% S.Con.Res. 19 2 (1) 17 (17) 0 1 20 (18) 10% 1983 S.Con.Res. 19 8 (1) 29 (27) 0 0 37 (28) 22% 1984 S.Con.Res. 27 7 (4) 24 (23) 0 0 31 (27) 23% 1985 S.Con.Res. 106 2 (0) 0 0 0 2 (0) 100% 1986 S.Con.Res. 32 15 (12) 24 (24) 0 0 39 (36) 38% 1987 S.Con.Res. 120 13 (5) 7 (7) 0 2 22 (12) 59% 1988 S.Con.Res. 49 5 (3) 8 (8) 0 2 15 (11) 33% 1989 S.Con.Res. 113 8 (4) 4 (4) 0 0 12 (8) 67% Withdrawn Total (RC) Success Ratea 11 The averages presented in this section are derived from all first budget resolutions considered on the Senate floor. Accordingly, they do not include the budget resolutions for FY2003 and FY2011, which were reported by the Senate Budget Committee but did not receive floor consideration. Congressional Research Service 27 Congressional Budget Resolutions: Historical Information Amendments Fiscal Year Budget Resolution Adopted (RC) Rejected (RC) Fell on Point of Order (RC) 1990 S.Con.Res. 30 23 (2) 2 (2) 0 1 26 (4) 88% 1991 S.Con.Res. 110 1 (0) 0 0 0 1 (0) 100% 1992 S.Con.Res. 29 7 (0) 5 (5) 1 (1) 1 14 (6) 50% 1993 S.Con.Res. 106 15 (5) 3 (3) 2 (2) 1 21 (10) 71% 1994 S.Con.Res. 18 22 (15) 28 (28) 0 0 50 (43) 44% 1995 S.Con.Res. 63 26 (3) 9 (9) 0 4 39 (12) 67% 1996 S.Con.Res. 13 26 (11) 33 (33) 12 (12) 1 72 (56) 36% 1997 S.Con.Res. 57 41 (18) 21 (20) 2 (2) 2 66 (40) 62% 1998 S.Con.Res. 27 39 (6) 12 (12) 1 (1) 11 63 (19) 62% 1999 S.Con.Res. 86 57 (15) 8 (6) 12 (12) 29 106 (33) 54% 2000 S.Con.Res. 20 57 (5) 8 (7) 9 (6) 20 95 (18) 60% 2001 S.Con.Res. 101 38 (10) 10 (10) 5 (5) 3 56 (25) 68% 2002 H.Con.Res. 83c 51 (12) 10 (7) 2 (2) 3 66 (21) 77% 2003 S.Con.Res. 20d — — — — — — 2004 S.Con.Res. 23 44 (13) 35 (35) 2 (2) 1 82 (50) 54% 2005 S.Con.Res. 95 39 (5) 19 (17) 2 (2) 4 64 (24) 61% 2006 S.Con.Res. 18 48 (14) 24 (22) 0 1 73 (36) 66% 2007 S.Con.Res. 83 54 (9) 27 (25) 0 6 87 (34) 62% 2008 S.Con.Res. 21 63 (7) 24 (24) 1 (1) 3 91 (32) 69% 2009 S.Con.Res. 70 88 (16) 20 (20) 4 (4) 1 113 (40) 78% 2010 S.Con.Res. 13 101 (15) 17 (17) 3 (3) 0 121 (35) 83% 2011 S.Con.Res. 60e — — — — — — 2012f — — — — — — — 2013g — — — — — — — 2014 S.Con.Res. 8 77 (14) 29 (28) 4 (4) 4 114 (46) 68% 2015h — — — — — — — 2016 S.Con.Res. 11 146 (31) 20 (20) 6 (6) 82 254 (58) 57% Withdrawn Total (RC) Success Ratea Source: Legislative Information System (LIS). Notes: This list includes first budget resolutions only. This table does not include motions to recommit offered during the consideration of the budget resolution. “RC” refers to the number of amendments on which a rollcall vote occurred in relation to the amendment. For purposes of this table, roll-call votes in relation to an amendment to the budget resolution include roll-call votes on agreeing to an amendment, on a motion to table an amendment, and on a motion to waive a point of order against an amendment. a. “Success rate” is the percentage of amendments accepted. b. The budget resolution was adopted by the Senate on April 2, 1981, by a vote of 88-10; no further action was taken. Congressional Research Service 28 Congressional Budget Resolutions: Historical Information c. d. e. f. g. h. The Senate Budget Committee did not mark up or report a budget resolution for FY2002. Instead, the Senate considered the House-passed budget resolution after the Senate Budget Committee was discharged from its consideration. The Senate Budget Committee reported the listed FY2003 budget resolution, but the full Senate did not consider it. The Senate Budget Committee reported the listed FY2011 budget resolution, but the full Senate did not consider it. The Senate did not consider a budget resolution for FY2012; on May 25, 2011, the Senate rejected motions to proceed to four different budget resolutions for FY2012. The Senate did not consider a budget resolution for FY2013; on May 16, 2012, the Senate rejected motions to proceed to five different budget resolutions for FY2013. The Senate did not consider a budget resolution for FY2015. Timing of Action on the Budget Resolution The Budget Act sets April 15 as a target date for completing action on the annual budget resolution. Table 12 lists the dates of final adoption of budget resolutions for FY1976-FY2015. During this period, Congress adopted the budget resolution by the target date only six times, most recently in 2003 with the FY2004 budget resolution. Under the original timetable (prior to 1986, the deadline was May 15), Congress adopted the annual budget resolution by the target date twice: in 1975 and 1976. After the target date was changed to April 15 by the 1985 Deficit Control Act, Congress has completed action on the budget resolution by the target date four times: in 1993, 1999, 2000, and 2003. Further, as noted above, Congress did not complete action on a budget resolution for nine fiscal years, most recently for FY2015. Table 12. Dates of Final Adoption of the Budget Resolution Fiscal Year Date Adopted Fiscal Year 1976 05-14-1975 1997 06-13-1996 1977 05-13-1976 1998 06-05-1997 1978 05-17-1977 1999 [none] 1979 05-17-1978 2000 04-15-1999 1980 05-24-1979 2001 04-13-2000 1981 06-12-1980 2002 05-10-2001 1982 05-21-1981 2003 [none] 1983 06-23-1982 2004 04-11-2003 1984 06-23-1983 2005 [none] 1985 10-01-1984 2006 04-28-2005 1986 08-01-1985 2007 [none] 1987 06-27-1986 2008 05-17-2007 1988 06-24-1987 2009 06-05-2008 1989 06-06-1988 2010 04-29-2009 1990 05-18-1989 2011 [none] 1991 10-09-1990 2012 [none] 1992 05-22-1991 2013 [none] 1993 05-21-1992 2014 [none] Congressional Research Service Date Adopted 29 Congressional Budget Resolutions: Historical Information Fiscal Year Date Adopted Fiscal Year Date Adopted 1994 04-01-1993 2015 [none] 1995 05-12-1994 2016 05-05-2015 1996 06-29-1995 Source: Legislative Information System (LIS). In those years in which Congress has adopted a budget resolution (that is, not including FY1999, FY2003, FY2005, FY2007, and FY2011 through FY2015), it has adopted the budget resolution an average of 36 days after the target date. The FY1991 budget resolution was adopted the latest, on October 9, 1990, or 177 days after the target date. The earliest adoption of a budget resolution was for FY1994 on April 1, 1993, or 14 days before the target date. Table 13 and Table 14 provide a list of dates related to the consideration and adoption of the budget resolution in the House and the Senate, respectively. Table 13. Timing of House Action on Budget Resolutions Typea Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 1976 H.Con.Res. 218 (S.Con.Res. 32) first 04-30-1975 05-01-1975 05-14-1975 H.Con.Res. 466 (S.Con.Res. 76) second 11-11-1975 11-12-1975 12-12-1975 S.Con.Res. 109 (H.Con.Res. 611) first 04-27-1976 04-29-1976 05-13-1976 S.Con.Res. 139 (H.Con.Res. 728) second 09-08-1976 09-09-1976 09-16-1976 S.Con.Res. 10 (H.Con.Res. 110) third 02-22-1977 02-23-1977 03-03-1977 S.Con.Res. 19 (H.Con.Res. 214) first 05-05-1977 05-05-1977 05-17-1977 H.Con.Res. 341 (S.Con.Res. 43) second 09-07-1977 09-08-1977 09-15-1977 S.Con.Res. 80 (H.Con.Res. 559) first 05-02-1978 05-10-1978 05-17-1978 H.Con.Res. 683 (S.Con.Res. 104) second 08-15-1978 08-16-1978 09-21-1978 H.Con.Res. 107 (S.Con.Res. 22) first 04-30-1979 05-14-1979 05-24-1979 S.Con.Res. 53 (H.Con.Res. 186) second 11-28-1979 11-28-1979 —b 1977 1978 1979 1980 Congressional Research Service 30 Congressional Budget Resolutions: Historical Information Typea Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 1981 H.Con.Res. 307 (S.Con.Res. 86) first 04-23-1980 05-07-1980 06-12-1980 H.Con.Res. 448 (S.Con.Res. 119) second 11-18-1980 11-18-1980 11-20-1980 H.Con.Res. 115 (S.Con.Res. 19) first 04-30-1981 05-07-1981 05-20-1981 S.Con.Res. 50 (H.Con.Res. 230) second 12-10-1981 12-10-1981 —c 1983 S.Con.Res. 92 (H.Con.Res. 352) — 06-10-1982 06-10-1982 06-22-1982 1984 H.Con.Res. 91 (S.Con.Res. 27) — 03-22-1983 03-23-1983 06-23-1983 1985 H.Con.Res. 280 (S.Con.Res. 106) — 04-04-1984 04-05-1984 10-01-1984 1986 S.Con.Res. 32 (H.Con.Res. 152) — 05-22-1985 05-23-1985 08-01-1985 1987 S.Con.Res. 120 (H.Con.Res. 337) — 05-14-1986 05-15-1986 06-26-1986 1988 H.Con.Res. 93 (S.Con.Res. 49) — 04-08-1987 04-09-1987 06-23-1987 1989 H.Con.Res. 268 (S.Con.Res. 113) — 03-23-1988 03-23-1988 05-26-1988 1990 H.Con.Res. 106 (S.Con.Res. 30) — 05-03-1989 05-04-1989 05-17-1989 1991 H.Con.Res. 310 (S.Con.Res. 110) — 04-25-1990 05-01-1990 10-08-1990 1992 H.Con.Res. 121 (S.Con.Res. 29) — 04-16-1991 04-17-1991 05-22-1991 1993 H.Con.Res. 287 (S.Con.Res. 106) — 03-04-1992 03-05-1992 05-21-1992 1994 H.Con.Res. 64 (S.Con.Res. 18) — 03-17-1993 03-18-1993 03-31-1993 1995 H.Con.Res. 218 (S.Con.Res. 63) — 03-10-1994 03-11-1994 05-05-1994 1996 H.Con.Res. 67 (S.Con.Res. 13) — 05-17-1995 05-18-1995 06-29-1995 1997 H.Con.Res. 178 (S.Con.Res. 57) — 05-15-1996 05-16-1996 06-12-1996 1998 H.Con.Res. 84 (S.Con.Res. 27) — 05-20-1997 05-21-1997 06-05-1997 1999 H.Con.Res. 284 (S.Con.Res. 86) — 06-04-1998 06-05-1998 — 1982 Congressional Research Service 31 Congressional Budget Resolutions: Historical Information Typea Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 2000 H.Con.Res. 68 (S.Con.Res. 20) — 03-25-1999 03-25-1999 04-14-1999 2001 H.Con.Res. 290 (S.Con.Res. 101) — 03-23-2000 03-23-2000 04-13-2000 2002 H.Con.Res. 83 (no companion measure)d — 03-27-2001 03-28-2001 05-09-2001 2003 H.Con.Res. 353 (S.Con.Res. 100) — 03-20-2002 03-20-2002 — 2004 H.Con.Res. 95 (S.Con.Res. 23) — 03-20-2003 03-21-2003 04-11-2003 2005e S.Con.Res. 95 (H.Con.Res. 393) — 03-24-2004 03-25-2004 05-19-2004 2006 H.Con.Res. 95 (S.Con.Res. 18) — 03-16-2005 03-17-2005 04-28-2005 2007 H.Con.Res. 376 (S.Con.Res. 83) — 04-06-2006 05-18-2006 — 2008 S.Con.Res. 21 (H.Con.Res. 99) — 03-28-2007 03-29-2007 05-17-2007 2009 S.Con.Res. 70 (H.Con.Res. 312) — 03-12-2008 03-13-2008 06-05-2008 2010 S.Con.Res. 13 (H.Con.Res. 85) — 04-01-2009 04-02-2009 04-29-2009 2011f (S.Con.Res. 60) — — — — 2012 H.Con.Res. 34 (no companion measure) — 04-14-2011 04-15-2011 — 2013 H.Con.Res. 112 — 03-28-2012 03-29-2012 — 2014 S.Con.Res. 8 (H.Con.Res. 25) — 03-19-2013 03-21-2013 — 2015 H.Con.Res. 96 (no companion measure) — 04-08-2014 04-10-2014 — 2016 S.Con.Res. 11 (H.Con.Res. 27) — 03-24-2015 03-25-2015 04-30-2015 Source: Legislative Information System (LIS). Notes: Unless otherwise indicated, no date in the conference report column indicates that Congress did not complete action on the budget resolution for that year. a. For purposes of this table, “type” refers to whether the budget resolution was the first, second, or third for the fiscal year. Originally, the Budget Act provided for the annual adoption of two budget resolutions for a fiscal year and the option of additional budget resolutions. In 1985, the act was amended to eliminate the second budget resolution; the option of additional budget resolutions remains. b. The House rejected its version of the budget resolution (see Table 3 of this report) and adopted the Senate’s version; no conference report was necessary. c. The House laid its version of the budget resolution on the table by unanimous consent and adopted the Senate’s version; no conference report was necessary. Congressional Research Service 32 Congressional Budget Resolutions: Historical Information d. e. f. The Senate Budget Committee did not mark up or report a budget resolution for FY2002. Instead, the Senate considered the House-passed budget resolution after the Senate Budget Committee was discharged from its consideration. Congress did not complete action on a budget resolution for FY2005. The House agreed to the conference report on S.Con.Res. 95, May 19, 2004; the Senate did not consider it. The House did not consider a budget resolution for FY2011. Table 14. Timing of Senate Action on Budget Resolutions Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 1976 H.Con.Res. 218 (S.Con.Res. 32) first 04-29-1975 05-01-1975 05-14-1975 H.Con.Res. 466 (S.Con.Res. 76) second 11-19-1975 11-20-1975 12-11-1975 S.Con.Res. 109 (H.Con.Res. 611) first 04-08-1976 04-12-1976 05-12-1976 S.Con.Res. 139 (H.Con.Res. 728) second 09-08-1976 09-09-1976 09-15-1976 S.Con.Res. 10 (H.Con.Res. 110) third 02-21-1977 02-22-1977 03-03-1977 S.Con.Res. 19 (H.Con.Res. 214) first 05-02-1977 05-04-1977 05-13-1977 H.Con.Res. 341 (S.Con.Res. 43) second 09-07-1977 09-09-1977 09-15-1977 S.Con.Res. 80 (H.Con.Res. 559) first 04-24-1978 04-26-1978 05-15-1978 H.Con.Res. 683 (S.Con.Res. 104) second 08-25-1978 09-06-1978 09-23-1978 H.Con.Res. 107 (S.Con.Res. 22) first 04-23-1979 04-25-1979 05-23-1979 S.Con.Res. 53 (H.Con.Res. 186) second 11-16-1979 11-16-1979 —b H.Con.Res. 307 (S.Con.Res. 86) first 05-05-1980 05-12-1980 06-12-1980 H.Con.Res. 448 (S.Con.Res. 119) second 11-18-1980 11-19-1980 11-20-1980 H.Con.Res. 115 (S.Con.Res. 19) first 05-07-1981 05-12-1981 05-21-1981 S.Con.Res. 50 (H.Con.Res. 230) second 12-08-1981 12-09-1981 —b S.Con.Res. 92 (H.Con.Res. 352) — 05-14-1982 05-21-1982 06-23-1982 1977 1978 1979 1980 1981 1982 1983 Congressional Research Service Typea 33 Congressional Budget Resolutions: Historical Information Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 1984 H.Con.Res. 91 (S.Con.Res. 27) — 05-02-1983 05-19-1983 06-23-1983 1985 H.Con.Res. 280 (S.Con.Res. 106) — 05-18-1984 05-18-1984 09-26-1984 1986 S.Con.Res. 32 (H.Con.Res. 152) — 04-25-1985 05-09-1985 08-01-1985 1987 S.Con.Res. 120 (H.Con.Res. 337) — 04-21-1986 05-01-1986 06-27-1986 1988 H.Con.Res. 93 (S.Con.Res. 49) — 04-28-1987 05-06-1987 06-24-1987 1989 H.Con.Res. 268 (S.Con.Res. 113) — 04-11-1988 04-14-1988 06-06-1988 1990 H.Con.Res. 106 (S.Con.Res. 30) — 05-02-1989 05-04-1989 05-18-1989 1991 H.Con.Res. 310 (S.Con.Res. 110) — 06-14-1990 06-14-1990 10-09-1990 1992 H.Con.Res. 121 (S.Con.Res. 29) — 04-23-1991 04-25-1991 05-22-1991 1993 H.Con.Res. 287 (S.Con.Res. 106) — 04-07-1992 04-10-1992 05-21-1992 1994 H.Con.Res. 64 (S.Con.Res. 18) — 03-17-1993 03-25-1993 04-01-1993 1995 H.Con.Res. 218 (S.Con.Res. 63) — 03-22-1994 03-25-1994 05-12-1994 1996 H.Con.Res. 67 (S.Con.Res. 13) — 05-18-1995 05-25-1995 06-29-1995 1997 H.Con.Res. 178 (S.Con.Res. 57) — 05-15-1996 05-23-1996 06-13-1996 1998 H.Con.Res. 84 (S.Con.Res. 27) — 05-20-1997 05-23-1997 06-05-1997 1999 H.Con.Res. 284 (S.Con.Res. 86) — 03-27-1998 04-02-1998 — 2000 H.Con.Res. 68 (S.Con.Res. 20 — 03-24-1999 03-25-1999 04-15-1999 2001 H.Con.Res. 290 (S.Con.Res. 101) — 04-04-2000 04-07-2000 04-13-2001 2002 H.Con.Res. 83 (no companion measure)c — 04-02-2001 04-06-2001 05-10-2001 2003 H.Con.Res. 353 (S.Con.Res. 100) — — — — 2004 H.Con.Res. 95 (S.Con.Res. 23) — 03-18-2003 03-26-2003 04-11-2003 Congressional Research Service Typea 34 Congressional Budget Resolutions: Historical Information Date Consideration Began Date of Initial Passage Date Conference Report Adopted Fiscal Year Budget Resolution (Companion Measure) 2005 S.Con.Res. 95 (H.Con.Res. 393) — 03-08-2004 03-12-2004 — 2006 H.Con.Res. 95 (S.Con.Res. 18) — 03-14-2005 03-17-2005 04-28-2005 2007 H.Con.Res. 376 (S.Con.Res. 83) — 03-13-2006 03-16-2006 — 2008 S.Con.Res. 21 (H.Con.Res. 99) — 03-20-2007 03-23-2007 05-17-2007 2009 S.Con.Res. 70 (H.Con.Res. 312) — 03-10-2008 03-14-2008 06-04-2008 2010 S.Con.Res. 13 (H.Con.Res. 85) — 03-30-2009 04-02-2009 04-29-2009 2011d S.Con.Res. 60 (no companion measure) — — — — 2012e (H.Con.Res. 34) — — — — 2013f (H.Con.Res. 112) — — — — 2014 S.Con.Res. 8 (H.Con.Res. 25) — 03-20-2013 03-23-2013 — 2015 (H.Con.Res. 96) — — — — 2016 S.Con.Res. 11 (H.Con.Res. 27) — 03-23-2015 03-27-2013 05-05-2015 Typea Source: Legislative Information System (LIS). Notes: Unless otherwise indicated, no date in the conference report column indicates that Congress did not complete action on the budget resolution for that year. a. For purposes of this table, “type” refers to whether the budget resolution was the first, second, or third for the fiscal year. Originally, the Budget Act provided for the annual adoption of two budget resolutions for a fiscal year and the option of additional budget resolutions. In 1985, the act was amended to eliminate the second budget resolution; the option of additional budget resolutions remains. b. The House adopted the Senate’s version of the budget resolution; no conference report was necessary. c. The Senate Budget Committee did not mark up or report a budget resolution for FY2002. Instead, the Senate considered the House-passed budget resolution after the Senate Budget Committee was discharged from its consideration. d. The Senate Budget Committee reported the listed FY2003 budget resolution, but the full Senate did not consider it. e. The Senate did not consider a budget resolution for FY2012; on May 25, 2011, the Senate rejected motions to proceed to four different budget resolutions for FY2012. f. The Senate did not consider a budget resolution for FY2013; on May 16, 2012, the Senate rejected motions to proceed to five different budget resolutions for FY2013. Congressional Research Service 35 Congressional Budget Resolutions: Historical Information Appendix. Modifications to the Procedures and Requirements Pertaining to the Development, Content, and Consideration of the Budget Resolution Full Employment and Balanced Growth Act of 1978 (“Humphrey-Hawkins Act”; P.L. 95523; 92 Stat. 1887-1908; October 27, 1978)  Called for a period of up to four hours for debate on economic goals and priorities following the presentation of opening floor statements on the budget resolution. Temporary Increase in the Public Debt Limit (P.L. 96-5; 93 Stat. 8; April 2, 1979)  Mandated that the President’s budget and the Budget Committees’ reported budget resolution for FY1981 and FY1982 be in balance. (Provision was repealed in 1982.) Balanced Budget and Emergency Deficit Control Act of 1985 (Title II of P.L. 99-177; 99 Stat. 1038-1101; December 12, 1985)12        Required Congress to complete action on a budget resolution by April 15 of each year (deadline moved from May 15). Eliminated the requirement that Congress adopt a second budget resolution annually by September 15. Formalized the practice of adopting a three-year budget resolution, with the second and third fiscal years non-binding. (Current law requires budget resolutions to cover at least five fiscal years.) Called for off-budget entities, except Social Security, to be included in the budget resolution and the President’s budget. Formalized the practice of including credit authority (direct and guaranteed loans) in the budget resolution. Mandated that neither chamber may consider a budget resolution, amendment to a budget resolution, or conference report on a budget resolution that recommends a deficit amount greater than the applicable maximum deficit amount established in the 1985 Balanced Budget Act. Excluded Social Security from budget totals, except for purposes of calculating the deficit in order to determine if sequestration is required. The budget resolution may contain two deficit totals: one with Social Security and one without. 12 For more information on changes made by the 1985 Balanced Budget and Emergency Deficit Control Act, see CRS Report 86-713, Changes in the Congressional Budget Process Made by the 1985 Balanced Budget Act (P.L. 99-177); and CRS Report 85-1130, Explanation of the Balanced Budget and Emergency Deficit Control Act of 1985 – P.L. 99177 (The Gramm-Rudman-Hollings Act), both available from the author. Congressional Research Service 36 Congressional Budget Resolutions: Historical Information Budget Enforcement Act (BEA) of 1990 (Title XIII of the Omnibus Budget Reconciliation Act of 1990; P.L. 101-508; 104 Stat. 1388-573 through 630; November 5, 1990)13       Added language to the Budget Act allowing the option to include pay-as-you-go procedures for the Senate and House in the budget resolution (Sections 301(b)(7) and 301(b)(8)). Required that the budget resolutions for FY1991-FY1995 cover five fiscal years. (Current law permanently requires at least five fiscal years; see BEA of 1997 below.) In the Senate, prohibited the consideration of a reported budget resolution calling for a reduction in Social Security surpluses. Changed deadline for submitting views and estimates reports from “on or before February 25 of each year” to “within 6 weeks after the President submits a budget.” Added language to the Budget Act allowing the option of including Social Security outlays and revenues in the budget resolution for purposes of Senate enforcement. In the Senate, created a point of order that prohibits the consideration of any budget resolution that would exceed any of the discretionary spending limits. (Initially, this point of order was added to the Budget Act as a temporary Section (601(b)); the BEA of 1997 permanently added this point of order to the Budget Act as Section 312(b) and applied the point of order to any legislation.) Omnibus Budget Reconciliation Act of 1993 (Title XIV of P.L. 103-66; 107 Stat. 683-685; August 10, 1993)  Extended through FY1998 the BEA requirement that budget resolutions cover five fiscal years. Budget Resolution for FY1995 (H.Con.Res. 218; 103rd Congress; May 12, 1994)14  Made permanent a temporary modification found in the budget resolutions for FY1993 and FY1994, which applied Section 301(i) to a budget resolution at any stage of consideration. Section 301(i) of the Budget Act prohibits the Senate from considering any reported budget resolution that would decrease the excess of Social Security revenues over Social Security outlays for any of the fiscal years covered by the resolution, subject to a three-fifths waiver requirement. This creates a “firewall” to protect Social Security balances. Budget Enforcement Act of 1997 (Title X of P.L. 105-33; 111 Stat. 677-712; August 5, 1997)15   Permanently required the budget resolution to cover at least five fiscal years. Made optional rather than mandatory the inclusion of total direct loan obligation and total primary loan guarantee commitment levels in the budget resolution and the accompanying report. 13 See CRS Report 90-520, Budget Enforcement Act of 1990: Brief Summary, available from the author. Although budget resolutions, which are agreed to in the form of a concurrent resolution, do not have the force of law, they can contain changes in congressional budget procedures. 15 For more information on changes made by the Budget Enforcement Act of 1997, see CRS Report 97-931, Budget Enforcement Act of 1997: Summary and Legislative History. 14 Congressional Research Service 37 Congressional Budget Resolutions: Historical Information    Modified the optional contents of the budget resolution to include special pay-asyou-go procedures in the Senate pertaining to the use of reserve funds. Allowed the Budget Committees to set an alternative deadline for committees to submit their views and estimates instead of the usual deadline of within six weeks after the President submits a budget. Applied the Senate point of order against a budget resolution recommending a decrease in the projected surplus in the Social Security trust funds to all its legislative stages. Budget Resolution for FY2000 (H.Con.Res. 68; 106th Congress; April 15, 1999)  Created a point of order that prohibited consideration of a revised FY2000 or a FY2001 budget resolution setting forth an on-budget deficit for any fiscal year (i.e., excluding any surplus resulting from the Social Security trust fund). The provision did not apply if the deficit for a fiscal year resulted solely from legislation that made structural programmatic reforms to enhance retirement security. Budget Resolution for FY2001 (H.Con.Res. 290; 106th Congress; April 13, 2000)   Applied the point of order against budget resolutions setting forth an on-budget deficit for any fiscal year (see FY2000 budget resolution) to a revised FY2001 or a FY2002 budget resolution. The provision would not apply if the economy experienced low growth in two consecutive quarters or if a declaration of war was in effect. Specified that amendments that contain predominately “precatory” language, such as sense-of-the-Senate amendments, are not germane, effectively prohibiting such amendments to budget resolutions and reconciliation legislation. Budget Resolution for FY2004 (H.Con.Res. 95; 108th Congress; April 11, 2003)  Extended through September 30, 2008, the three-fifths vote requirement in the Senate to waive and to sustain an appeal of a ruling of the chair on certain points of order specified in Sections 904(c)(2) and 904(d)(3) of the Budget Act. Budget Resolution for FY2006 (H.Con.Res. 95; 109th Congress; April 28, 2005)  Extended through September 30, 2010, the three-fifths vote requirement in the Senate to waive and to sustain an appeal of a ruling of the chair on certain points of order specified in Sections 904(c)(2) and 904(d)(3) of the Budget Act. House Rule XXI, Clause 7 (H.Res. 6; 110th Congress; January 5, 2007)  Created a point of order against the consideration of a budget resolution containing budget reconciliation directives having a net effect of reducing the surplus or increasing the deficit. (Clause was modified at the beginning of the 112th Congress; see below.) Budget Resolution for FY2008 (S.Con.Res. 21; 110th Congress; May 17, 2007)  Extended through September 30, 2017, the three-fifths vote requirement in the Senate to waive and to sustain an appeal of a ruling of the chair on certain points of order specified in Sections 904(c)(2) and 904(d)(3) of the Budget Act. Congressional Research Service 38 Congressional Budget Resolutions: Historical Information House Rule XXI, Clause 7 (H.Res. 5; 112th Congress; January 5, 2011)  Modified the rule to prohibit the consideration of a budget resolution containing reconciliation directives that would result in budget reconciliation legislation that would cause a net increase in direct spending (i.e., mandatory spending) over the period of the budget resolution. Separate Order in House for 113th Congress (Section 3(e) of H.Res. 5; 113th Congress; January 3, 2013)  Created a requirement that the budget resolution (as well as any amendments thereto and any conference report thereon) include for means-tested direct spending and non-means-tested direct spending the following information: (1) the average growth rate (in terms of outlays) for the 10 years preceding the budget year; (2) estimates under current law for the period covered by the budget resolution; and (3) information on proposed reforms. (This requirement was extended to the 114th Congress by Section 3(h) of H.Res. 5, 114th Congress, January 6, 2015.) Budget Resolution for FY2016 (S.Con.Res. 11; 114th Congress; May 5, 2015)  Extended through September 30, 2025, the three-fifths vote requirement in the Senate to waive and to sustain an appeal of a ruling of the chair on certain points of order specified in Sections 904(c)(2) and 904(d)(3) of the Budget Act. Author Contact Information (name redacted) Analyst on Congress and the Legislative Process [redacted]@crs.loc.gov , 7-.... Acknowledgments Several analysts, including former CRS employees, assisted in compiling the information in this report and contributed to its development. The current author, however, assumes responsibility for its current content. Key Policy Staff Area of Expertise Name Phone Email Congressional budget procedure (name redacted) 7-.... [redacted]@crs.loc.gov Congressional budget procedure (name redacted) 7-.... [redacted]@crs.loc.gov Congressional budget procedure Megan Suzanne Lynch 7-.... [redacted]@crs.loc.gov Congressional budget procedure (name redacted) 7-.... [redacted]@crs.loc.gov Information research specialist (name redacted) 7-.... [redacted]@crs.loc.gov Congressional Research Service 39 EveryCRSReport.com The Congressional Research Service (CRS) is a federal legislative branch agency, housed inside the Library of Congress, charged with providing the United States Congress non-partisan advice on issues that may come before Congress. EveryCRSReport.com republishes CRS reports that are available to all Congressional staff. The reports are not classified, and Members of Congress routinely make individual reports available to the public. Prior to our republication, we redacted names, phone numbers and email addresses of analysts who produced the reports. We also added this page to the report. We have not intentionally made any other changes to any report published on EveryCRSReport.com. 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 permission of the copyright holder if you wish to copy or otherwise use copyrighted material. 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' institutional role. EveryCRSReport.com is not a government website and is not affiliated with CRS. We do not claim copyright on any CRS report we have republished. --- Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/crs%3ARL30297. Public record. Not legal advice.