🏛️Congress Unit 11 – Congress and the Federal Budget Process

The Basics of Congress and Budgeting

• Congress holds the "power of the purse" granted by the Constitution (Article I, Section 9, Clause 7)
• The federal budget process involves creating a plan for government spending and revenue collection
  • Includes setting spending priorities and allocating funds to various programs and agencies
• The budget process operates on a fiscal year basis, which runs from October 1 to September 30
• Congress must pass appropriations bills to fund government operations and programs
  • Failure to pass appropriations can lead to government shutdowns
• The budget process involves both the executive and legislative branches
  • The President submits a budget proposal, but Congress ultimately determines the final budget
• The Congressional Budget and Impoundment Control Act of 1974 established the modern budget process
  • Created the House and Senate Budget Committees and the Congressional Budget Office (CBO)
• The federal budget consists of mandatory spending, discretionary spending, and interest on the national debt

Key Players in the Federal Budget Process

• The President submits a budget proposal to Congress, usually in February
  • Outlines the administration's spending priorities and revenue projections
• The Office of Management and Budget (OMB) assists the President in preparing the budget proposal
• The Congressional Budget Office (CBO) provides nonpartisan analysis of budget and economic issues
  • Estimates the costs and effects of proposed legislation
• The House and Senate Budget Committees draft budget resolutions and oversee the budget process
• The House and Senate Appropriations Committees allocate funds to specific programs and agencies
  • Each committee has subcommittees focused on different areas of government spending
• Individual members of Congress can influence the budget through amendments, negotiations, and voting

Steps of the Federal Budget Process

1. The President submits a budget proposal to Congress (usually in February)
2. The CBO analyzes the President's budget and provides a report to Congress
3. The House and Senate Budget Committees draft budget resolutions
   • Set overall spending and revenue levels for the upcoming fiscal year
4. The budget resolutions are debated and voted on in each chamber
   • Differences between the House and Senate resolutions are reconciled in a conference committee
5. The Appropriations Committees in each chamber allocate funds to specific programs and agencies
   • Subcommittees draft appropriations bills for their respective areas of government spending
6. Appropriations bills are debated, amended, and voted on in each chamber
   • Differences are reconciled in conference committees
7. The President signs the appropriations bills into law or vetoes them
   • Congress can override a veto with a two-thirds majority in both chambers
8. If appropriations bills are not passed by the start of the fiscal year (October 1), Congress may pass continuing resolutions to temporarily fund government operations

Congressional Budget Committees and Their Roles

• The House and Senate Budget Committees were established by the Congressional Budget and Impoundment Control Act of 1974
• The committees are responsible for drafting budget resolutions and overseeing the budget process
  • Budget resolutions set overall spending and revenue levels for the upcoming fiscal year
• The committees hold hearings on budget issues and review the President's budget proposal
• The committees can use the reconciliation process to fast-track certain budget-related legislation
  • Reconciliation bills are not subject to filibusters in the Senate
• The House Budget Committee has 36 members, while the Senate Budget Committee has 22 members
  • Membership is determined by party leadership and is proportional to party representation in each chamber
• The committees work closely with the CBO to analyze budget and economic issues

Budget Resolutions and Reconciliation

• Budget resolutions are non-binding plans that set overall spending and revenue levels for the upcoming fiscal year
  • They do not have the force of law but guide the appropriations process
• Budget resolutions include budget functions, which categorize spending into broad areas (e.g., defense, health, education)
• The reconciliation process allows for expedited consideration of certain budget-related legislation
  • Reconciliation bills can include changes to mandatory spending programs, taxes, and the debt limit
• Reconciliation bills are privileged in the Senate and are not subject to filibusters
  • They can pass with a simple majority (51 votes) rather than the usual 60-vote threshold
• The scope of reconciliation bills is limited by the "Byrd Rule," which prohibits the inclusion of non-budgetary provisions
• Recent notable reconciliation bills include the Tax Cuts and Jobs Act of 2017 and the American Rescue Plan Act of 2021

Appropriations vs. Authorizations

• Appropriations and authorizations are two distinct processes in congressional budgeting
• Authorizations establish, continue, or modify government programs or agencies
  • They set policies and guidelines for programs but do not provide funding
• Appropriations provide the actual funding for authorized programs and agencies
  • They specify the amount of money allocated to each program for a given fiscal year
• Authorizations are typically multi-year, while appropriations are annual
• The authorization process is handled by various legislative committees (e.g., Armed Services, Agriculture)
• The appropriations process is handled by the House and Senate Appropriations Committees and their subcommittees
• In some cases, Congress may pass an omnibus appropriations bill, which combines multiple appropriations bills into a single package

Challenges and Debates in Budgeting

• Balancing competing priorities and interests can lead to contentious budget negotiations
  • Different stakeholders (e.g., political parties, interest groups) often have conflicting goals
• The growing national debt and annual budget deficits pose long-term fiscal challenges
  • Debates over spending cuts, tax increases, and entitlement reform are ongoing
• Partisan polarization can lead to gridlock and delays in the budget process
  • This can result in government shutdowns or the need for continuing resolutions
• The use of budget gimmicks, such as creative accounting or unrealistic assumptions, can undermine the integrity of the budget process
• Unforeseen events, such as economic recessions or national emergencies, can disrupt budget plans and require swift adjustments
• The complexity of the budget process and the sheer size of the federal budget can make it difficult for the public to understand and engage with budgetary issues

Recent Trends and Future Outlook

• In recent years, Congress has increasingly relied on omnibus appropriations bills and continuing resolutions to fund government operations
  • This reflects the difficulty of passing individual appropriations bills on time
• The COVID-19 pandemic led to significant increases in federal spending and deficits
  • Congress passed several large relief packages, such as the CARES Act and the American Rescue Plan Act
• The aging population and rising healthcare costs are expected to put increasing pressure on mandatory spending programs (e.g., Social Security, Medicare)
• There is growing interest in budget process reforms to improve transparency, accountability, and long-term fiscal sustainability
  • Proposals include biennial budgeting, performance-based budgeting, and debt reduction targets
• The outlook for the federal budget depends on a variety of factors, including economic growth, demographic trends, and political decisions
  • Addressing long-term fiscal challenges will likely require a combination of spending cuts, revenue increases, and entitlement reforms
• Continued public engagement and informed debate will be crucial for shaping the future of the federal budget and ensuring responsible stewardship of taxpayer dollars