Patterns of Change in the Congressional Budget Process, 1865-1974

Abstract

This paper examines five periods of congressional budget reform, from 1865 to 1974, and asks two sets of related questions: (1) What are the external and internal factors that seem to precipitate reform? and (2) Are there systematic differences in the ways Congress responds to internal and external pressures for change? If so, in the process of formulating successful (i.e. adopted) reforms, how are the responses to external stresses balanced against those designed to deal with internal questions? The research indicates that economic difficulties engendered by war and major changes in presidential-congressional relations with respect to fiscal policymaking are the crucial external variables. Internally, major shifts in the power relations of those involved in congressional spending decisions appear to facilitate budget reform. In responding to external pressures on its budget process, Congress tends to centralize its budget procedures. In response to internal pressures, Congress tends to decentralize those procedures.