Summary: Frustration and the budget process appear to go hand and hand. The public seems confused by the budget process, while executive branch agencies view it as a time-consuming ordeal. Even Members of Congress characterize the process as lengthy and accompanied by too many votes on authorizations, budget resolution, reconciliation, appropriations, and debt limit. Too often the results are not what was expected or hoped for. GAO testified that although biennial appropriations could save time for federal agencies, they also could shift control and oversight over federal programs away from Congress. Moreover, although budgeting always involves forecasting, the longer the period of the forecast, the greater the uncertainty. Increased difficulty in forecasting is one of the main reasons that states have switched from biennial to annual cycles. In GAO's view, biennial appropriations would hardly be a cure-all for the nation's budget problems. Congress will have to ask itself how it wants to exercise its constitutional authority over appropriations and in what forum it will conduct its oversight responsibilities.
