Fact-checked by Grok 2 weeks ago

Concurrent resolution

A concurrent resolution is a legislative measure adopted by both the House of Representatives and the Senate of the United States Congress that addresses internal congressional operations or expresses non-binding sentiments without requiring presidential approval, thereby lacking the force of law.^[1]^[2] Originating in either chamber and designated as "H. Con. Res." or "S. Con. Res." followed by a number, it facilitates joint actions such as amending rules applicable to both houses, appointing joint committees, or setting adjournment dates.^[3]^[4] Concurrent resolutions serve distinct procedural and symbolic functions, distinguishing them from bills or joint resolutions that can become law. They are commonly employed to convey congressional opinions on policy matters, foreign affairs, or commemorative events, such as honoring individuals or nations, without imposing legal obligations.^[1]^[5] A prominent application involves budget resolutions, which outline fiscal priorities, revenue targets, and spending levels to guide appropriations but carry no enforceable authority unless followed by binding legislation.^[6] For instance, they have been used to establish joint select committees or to express collective thanks, as in historical tributes to military leaders.^[5]^[7] While concurrent resolutions enable efficient coordination between chambers on non-legislative issues, their non-binding nature limits their impact to influencing subsequent debates or signaling intent, underscoring Congress's internal autonomy in a separation-of-powers framework.^[2]^[8] This mechanism reflects the bicameral structure's emphasis on consensus for procedural harmony, though it has occasionally highlighted partisan divides in achieving agreement on symbolic or budgetary expressions.^[9]

Definition and characteristics

Core features and legal status

A concurrent resolution is a legislative measure requiring adoption by both chambers of the United States Congress to address matters affecting their joint operations, such as procedural rules, adjournments, or expressions of congressional sentiment.^[1]^[3] It originates in either the House (designated "H. Con. Res.") or Senate ("S. Con. Res."), followed by a sequential number assigned upon introduction.^[3] Unlike simple or joint resolutions, concurrent resolutions demand bicameral agreement without presidential involvement, reflecting their focus on internal legislative coordination rather than external enforcement.^[2] Key features include their role in non-binding declarations, such as conveying congratulations, commemorations, or policy preferences that do not alter legal obligations.^[1] They facilitate unified congressional action on administrative matters, like authorizing joint committees or invalidating certain rules, but lack mechanisms for appropriation or statutory change.^[10] In practice, concurrent resolutions streamline bicameral consensus on housekeeping functions, with passage typically following standard debate and amendment procedures in each chamber before final enrollment.^[3] Concurrent resolutions hold no force of law, as they bypass presidential signature and cannot amend statutes, impose taxes, or bind executive or judicial branches.^[11]^[12] Their legal status is confined to procedural effects within Congress, such as budgetary resolutions establishing optional fiscal targets under the Congressional Budget Act of 1974, which guide subsequent legislation without enforceable penalties for deviation.^[12] This limitation stems from Article I of the Constitution, which reserves lawmaking authority to bills presented for presidential assent, rendering concurrent resolutions symbolic or internally directive only.^[11] Courts have upheld this distinction, rejecting attempts to treat them as binding precedents outside congressional operations.^[10]

Distinctions from other resolutions and bills

Concurrent resolutions differ from bills and other types of resolutions primarily in their scope, procedural path, and legal effect. Unlike bills, which propose substantive legislation and, if passed by both chambers of Congress and approved by the President (or veto overridden), become binding law, concurrent resolutions require passage only by the House and Senate without submission to the President and possess no statutory force.^[3]^[1] They are employed for procedural or expressive purposes, such as coordinating adjournments between chambers or outlining non-binding budgetary instructions under the Congressional Budget Act of 1974.^[10] In contrast to joint resolutions, which follow a legislative trajectory nearly identical to bills—including bicameral passage and presidential consideration for matters short of constitutional amendments—concurrent resolutions cannot enact laws or appropriations with legal effect.^[3]^[13] Joint resolutions are typically reserved for targeted enactments, like emergency funding or proposing constitutional amendments (which bypass presidential signature), whereas concurrent resolutions are confined to internal congressional operations or symbolic declarations.^[1]^[14] Simple resolutions, by comparison, pertain solely to one chamber and do not require concurrence from the other, limiting their impact to unilateral actions such as adopting chamber-specific rules, issuing committee reports, or expressing intra-house sentiments.^[15] Concurrent resolutions extend this bicameral coordination without external enforcement, distinguishing them as a mechanism for unified congressional housekeeping rather than unilateral or executive-involving measures.^[3]

Type	Chambers Required	Presidential Approval	Force of Law	Common Uses
Bill	Both	Yes	Yes	General legislation to enact statutes.^[3]
Joint Resolution	Both	Yes (except constitutional amendments)	Yes	Emergency appropriations, constitutional amendments.^[1]
Concurrent Resolution	Both	No	No	Adjournment coordination, budget blueprints, joint expressions of opinion.^[2]
Simple Resolution	One	No	No (chamber-specific)	Internal rules, commemorations in single chamber.^[15]

Historical origins and evolution

Parliamentary precedents

The practice of concurrent resolutions originated from English parliamentary traditions adapted for bicameral legislatures, emphasizing agreement between houses on matters not requiring executive approval. Thomas Jefferson's A Manual of Parliamentary Practice (1801), compiled during his tenure as Senate president, drew directly from British precedents, including procedures from the House of Commons as documented in works like John Hatsell's Precedents of Proceedings in the House of Commons.^[16] These precedents addressed resolutions for expressing opinions, facts, or internal directives, where both houses achieved concurrence through separate votes or formal messages rather than a single binding instrument, mirroring the non-legislative status of concurrent resolutions.^[17] In British practice, analogous mechanisms included both houses passing identical resolutions or coordinating via conference to resolve differences on shared concerns, such as privilege disputes or addresses unrelated to prerogative powers. Jefferson incorporated these into U.S. procedure, noting, for example, the English Parliament's use of joint committees requiring inter-house agreement, which paralleled early congressional needs for unified action on printing orders or adjournments.^[18] This approach avoided royal involvement, establishing a model for internal legislative coordination that influenced colonial assemblies, where upper and lower houses similarly concurred on resolves for administrative or declarative purposes without gubernatorial assent.^[7] The adaptation formalized concurrent resolutions as a distinct tool by the early 19th century, with the resolving clause evolving beyond Jefferson's original phrasing to suit American bicameralism. Unlike bills or joint resolutions, these drew from precedents prioritizing procedural efficiency over legal force, ensuring both chambers could express collective intent on policy sentiments or operational rules without external veto.^[19] This evolution preserved the causal logic of divided legislative powers while privileging empirical alignment between houses, as seen in precedents for quorum calls and debate limits derived from English custom.^[20]

Development in American legislatures

Concurrent resolutions emerged in the United States Congress during the 19th century as a procedural tool for both chambers to address joint administrative or expressive matters without invoking the full legislative process or presidential approval, distinguishing them from joint resolutions that could become law. Early usage focused on establishing joint committees and coordinating internal operations, reflecting the bicameral structure's need for inter-house agreement on non-binding actions. For instance, on December 10, 1861, amid the Civil War, Congress adopted a concurrent resolution to form a joint committee investigating military expenditures and war conduct, marking an early application for oversight without legal force.^[21] Similarly, in 1868, a concurrent resolution declared the Fourteenth Amendment ratified by the requisite states, serving as a formal congressional pronouncement rather than binding legislation.^[22] By the late 19th century, congressional precedents clarified concurrent resolutions' non-legislative status, exempting them from presentment to the President under Article I, Section 7 of the Constitution, provided they avoided directing executive actions. The Senate Judiciary Committee in 1897 affirmed this in Report No. 1335, emphasizing their role in procedural coordination, such as adjournments or joint rules, while cautioning against substantive policy overrides.^[23] This distinction evolved from initial ad hoc uses to more standardized forms, including expressions of sentiment or honors, as seen in post-World War II resolutions thanking military leaders.^[23] In the 20th century, concurrent resolutions expanded for budgetary planning after the Congressional Budget and Impoundment Control Act of 1974 mandated an annual concurrent budget resolution to set fiscal targets, though without enforceable effect. However, their occasional misuse for "legislative vetoes"—overriding executive decisions without bicameralism and presentment—was invalidated by the Supreme Court in Immigration and Naturalization Service v. Chadha (1983), reinforcing their internal, non-binding character and curbing overreach.^[2] State legislatures, modeling federal practices, similarly adopted concurrent resolutions from the early republic onward for joint procedural matters, memorials to Congress, or internal governance, with variations by state constitution; for example, many states use them for adjournments exceeding three days or expressing policy views.^[1] This parallel development underscores their utility in federalism, prioritizing chamber consensus over external enforcement.

Legislative procedure

Introduction, debate, and passage

Concurrent resolutions in the United States Congress are introduced by any member in either the House of Representatives or the Senate. In the House, the sponsoring member submits the text to the Clerk's desk during a session, where it is read, assigned a sequential number, and designated "H.Con.Res." followed by that number; the Speaker then refers it to one or more standing committees based on subject matter, guided by recommendations from the House parliamentarian.^[24] In the Senate, introduction occurs similarly at the desk during a session, with designation as "S.Con.Res." and a sequential number, followed by referral by the presiding officer or parliamentarian to relevant committees.^[1] Upon referral, the resolution undergoes committee consideration, including potential hearings, deliberations, and markup sessions where amendments may be offered. The committee votes on whether to report the measure favorably, with or without amendments, to the full chamber; if not reported, it typically remains inactive unless discharged by a petition or special motion, though such discharges are rare for resolutions. Reported resolutions are placed on the chamber's calendar for floor action. Floor debate and consideration vary by chamber rules. In the House, if advanced, the Rules Committee often reports a special rule governing debate duration (typically one to two hours, divided equally), amendment germaneness, and voting procedures, after which the House votes on the rule before debating the resolution itself, usually in the Committee of the Whole for efficiency; alternatives include the suspension of the rules procedure for non-controversial matters, limiting debate to 40 minutes and requiring a two-thirds majority vote.^[24] In the Senate, debate is generally unlimited and can be filibustered unless curtailed by unanimous consent agreements or a cloture petition invoking a three-fifths supermajority vote to limit further discussion to 30 additional hours; amendments are freely offered under Senate precedents unless restricted.^[1] Passage requires a simple majority vote in each chamber on the final version.^[14] If the chambers pass differing texts, the non-originating chamber may amend the other version, prompting a return for concurrence, or both may appoint conferees to negotiate a compromise in a conference committee, producing a conference report that each chamber then approves by majority vote without further amendments.^[25] Upon identical adoption, the resolution is enrolled, signed by the Speaker of the House and the President of the Senate (or President pro tempore), and takes effect internally without presentation to the President or risk of veto, distinguishing it from bills and joint resolutions.^[24]^[1]

Designation, numbering, and tracking

Concurrent resolutions are designated with a prefix indicating the originating chamber and type of resolution. Those introduced in the House of Representatives are labeled "H. Con. Res." followed by a sequential number, while those originating in the Senate are designated "S. Con. Res." followed by their number.^[3]^[1] Numbering begins anew at the start of each two-year Congress, with assignments made in the order of introduction within each chamber. For example, the first House concurrent resolution of the 119th Congress (2025-2026) is H. Con. Res. 1, and subsequent ones increment accordingly, such as H. Con. Res. 14 for the congressional budget resolution.^[26]^[27] Tracking of concurrent resolutions occurs primarily through official legislative databases like Congress.gov, operated by the Library of Congress, which provides access to bill text, summaries, legislative actions, amendments, and status updates from introduction to final disposition. Users can search by designation and number, monitor progress via email alerts, and review related committee reports or floor actions.^[28]^[29] Complementary non-governmental platforms, such as GovTrack.us, aggregate data from official sources to offer additional tracking features, including probability of passage estimates and historical comparisons, though they rely on government feeds for accuracy.^[30]

Primary uses in the United States Congress

Budgetary and fiscal resolutions

Concurrent resolutions play a central role in the U.S. congressional budget process by establishing non-binding fiscal targets that guide subsequent appropriations and revenue legislation.^[31] Under the Congressional Budget and Impoundment Control Act of 1974 (P.L. 93-344), Congress is required to adopt an annual concurrent budget resolution that outlines aggregate levels of new budget authority, outlays, revenues, deficits or surpluses, and public debt for the upcoming fiscal year and at least the following four years.^[32] This resolution serves as a blueprint, enforcing budgetary discipline through mechanisms like points of order against legislation exceeding its targets, without requiring presidential approval or becoming law.^[33] The resolution's fiscal framework includes allocations across 20 budget functions, such as national defense, health, and income security, directing committees to adhere to specified spending levels.^[34] It may also incorporate reconciliation instructions, authorizing fast-track consideration of bills to adjust mandatory spending, revenues, or the debt limit to align with the resolution's goals, bypassing filibusters in the Senate. For instance, Section 310 of the 1974 Act permits such instructions only if they stem from the concurrent resolution, ensuring changes do not worsen the deficit beyond projected levels.^[32] Failure to adopt the resolution can delay other budget-related measures, as Section 303 prohibits floor consideration of appropriations, revenue, or debt-limit bills until it passes both chambers.^[35] In practice, these resolutions reflect congressional priorities amid partisan divides, often resulting in delayed or revised adoptions.^[31] The House and Senate Budget Committees draft and report the measure after reviewing the president's budget proposal, with hearings informing topline figures.^[33] Recent examples include H.Con.Res. 14 (119th Congress, 2025), which set fiscal year 2025 targets emphasizing spending restraint and debt reduction, and S.Con.Res. 5 (117th Congress, 2021), which prioritized infrastructure and pandemic recovery outlays amid elevated deficits.^[36] ^[6] While not legally enforceable, violations trigger parliamentary challenges, promoting accountability, though critics note frequent waivers undermine rigor.^[34] Revisions are permitted under Section 304, allowing updates to reflect economic changes or midterm elections without restarting the process.^[37]

Internal rules and adjournments

Concurrent resolutions in the U.S. Congress authorize adjournments of either or both houses exceeding three days, fulfilling the constitutional mandate in Article I, Section 5, Clause 4 that neither chamber may adjourn without the other's consent for longer than three days during a session. These resolutions specify the adjournment's date, duration, and conditions, such as conditional recesses tied to legislative progress, as seen in S. Con. Res. 17 of the 113th Congress, which provided for potential adjournments pending agreement on fiscal matters.^[38] Sine die adjournments, marking the end of a congressional session, similarly require concurrent resolution approval from both houses to ensure coordinated closure.^[39] The procedural necessity arises from the bicameral structure, preventing unilateral extended breaks that could disrupt legislative balance, with the resolution requiring identical passage in both chambers without presidential involvement.^[14] In practice, such resolutions have become less frequent in recent decades; for instance, pro forma sessions—brief, nominal meetings without business—allow houses to maintain session continuity and avoid formal adjournments over three days, reducing reliance on concurrent measures during periods of partisan gridlock.^[40] Beyond adjournments, concurrent resolutions enable the creation, amendment, or suspension of joint rules governing bicameral operations, such as message exchange protocols or coordinated committee procedures applicable to both houses.^[41] These joint rules, distinct from each chamber's standalone standing rules adopted via simple resolutions, address shared administrative functions; for example, early joint rules from 1789 facilitated the transfer of legislation between houses or to the president.^[42] Adoption occurs through concurrent agreement, ensuring mutual consent for rules impacting inter-house dynamics without enacting binding law.^[1] This mechanism underscores concurrent resolutions' role in internal governance, limited to procedural harmony rather than substantive policy.^[14]

Non-binding expressions of policy or sentiment

Concurrent resolutions frequently articulate non-binding declarations of the "sense of Congress," conveying shared opinions, principles, or policy preferences on matters such as foreign relations, national priorities, or ethical stances without imposing legal obligations.^[1]^[43] These instruments reflect bipartisan or majority consensus in both the House and Senate, serving to signal intent to the executive branch, influence administrative actions informally, or communicate positions to the public and international audiences, though they carry no force of law and do not require presidential assent.^[7]^[44] In foreign policy contexts, such resolutions have expressed support for allies or condemnation of adversaries; for instance, during the 118th Congress (2023-2024), H. Con. Res. 3 declared the sense of Congress regarding U.S. strategic interests, underscoring congressional views on global engagements without mandating specific actions.^[45] Similarly, in the 119th Congress (2025-2026), H. Con. Res. 8 articulated congressional sentiment on national security policy, highlighting perceived threats and preferred responses.^[46] These measures often emerge amid debates over executive decisions, as seen in historical uses to opine on military authorizations or diplomatic postures, providing a procedural outlet for legislative input absent binding authority.^[23] Domestically, concurrent resolutions convey sentiments on fiscal restraint, commemorative events, or procedural norms, such as affirming congressional oversight roles or marking anniversaries of significant legislation.^[10] Critics note their symbolic nature can lead to partisan posturing, yet proponents argue they foster institutional unity and guide future legislation by establishing recorded positions; empirical analysis of passage rates shows higher success for consensus-driven sentiments over divisive ones, with adoption requiring simple majorities in both chambers under expedited procedures.^[18] Overall, their non-enforceability stems from constitutional design, limiting them to advisory functions that complement rather than constrain executive or judicial powers.^[47]

Applications in state legislatures

Procedural similarities and state-specific variations

In U.S. state legislatures, concurrent resolutions generally mirror federal procedures by requiring passage in identical form by both the house and senate, without necessitating gubernatorial approval or signature to express the legislature's collective intent or to address internal matters.^[48]^[49] This process typically begins with introduction in one chamber, potential referral to a relevant committee for review (though often expedited or bypassed for non-substantive resolutions), floor debate under rules similar to those for bills, and a simple majority vote for adoption before transmission to the second chamber for concurrence.^[48] Upon approval, they are enrolled and filed without executive presentation, lacking the force of law but serving for purposes like joint sessions, rule amendments, or policy expressions.^[49] State-specific variations arise primarily in gubernatorial involvement, numbering conventions, and handling protocols. For instance, Texas deviates from the majority practice by requiring concurrent resolutions to be presented to the governor for approval, akin to bills, which can include signing or veto options, as evidenced by gubernatorial actions on measures like HCR 24 in 2025.^[50]^[51] In contrast, states such as California explicitly exempt concurrent resolutions from gubernatorial signature, emphasizing their intra-legislative nature.^[49] Numbering differs by state—e.g., prefixed as HCR or SCR—while some legislatures, like those in Delaware or Florida, route them through consent calendars for batch approval to streamline non-controversial items.^[52] Additional procedural divergences include exemptions from bill introduction limits in certain states, allowing unlimited concurrent resolutions during sessions, and tailored uses such as authorizing remote voting during emergencies via concurrent resolution in response to events like COVID-19.^[53]^[54] These adaptations reflect local constitutional provisions and rules, with 49 bicameral legislatures (excluding Nebraska's unicameral system) employing concurrent resolutions but varying in quorum requirements or amendment thresholds for joint actions.^[48]

Typical state-level purposes and examples

In U.S. state legislatures, concurrent resolutions primarily address internal procedural matters or express non-binding sentiments shared by both chambers, lacking the force of law but facilitating joint action without gubernatorial approval. Common procedural uses include authorizing adjournments, recesses, or the creation of joint committees to study issues like water conservation or legislative operations. For example, Kansas House Concurrent Resolution 5015, adopted in 2023, provided for the temporary adjournment of the House during the regular session to accommodate scheduling needs.^[55] Similarly, North Dakota has employed them to designate interim committees or direct legislative research post-adjournment.^[56] Another frequent purpose involves commemorating events, honoring individuals, or issuing memorials for the deceased, often to recognize contributions to the state or nation. In Oklahoma, House Concurrent Resolution 1012 from the 2024 session acknowledged the historical role of the Tuskegee Airmen in advancing aviation and civil rights.^[57] Kentucky's Senate Concurrent Resolution 34, passed in the 2025 regular session, paid tribute to the life and service of Patrick J. Crowley, a local figure.^[58] Nevada's Assembly Concurrent Resolution in 1969 marked the centennial of state capitol construction authorization, highlighting architectural and historical significance.^[59] These resolutions typically culminate in formal proclamations or transmittals to honorees' families. State legislatures also leverage concurrent resolutions to articulate policy positions or petition external entities, such as memorializing Congress for federal reforms or applying for constitutional conventions under Article V. Missouri Senate Concurrent Resolution 21, introduced in 2022, urged Congress to convene a convention limited to proposing fiscal restraints on the federal government.^[60] In Texas, such measures routinely convey commendations, policy statements, or requests to federal authorities, reflecting the legislature's collective stance on interstate or national issues.^[61] Missouri's procedures similarly encompass memorializing federal action, sine die adjournments, or joint committee formations, underscoring their role in unified advocacy without legislative enactment.^[62] While effective for consensus-building, these resolutions carry no legal weight, serving instead as symbolic or coordinative tools.

Notable examples and recent developments

Key federal concurrent resolutions

In 1951, following President Harry S. Truman's relief of General Douglas MacArthur from command in the Korean War, Congress adopted H. Con. Res. 347 tendering the thanks of both houses to MacArthur for his distinguished service.^[23] The resolution, passed amid partisan divisions over the dismissal, highlighted congressional support for MacArthur's military leadership and strategy, underscoring the body's role in expressing collective sentiment independent of executive action.^[63] H. Con. Res. 331, adopted in the 100th Congress on September 13, 1988, acknowledged the historical contributions of the Iroquois Confederacy of Nations to the development of the United States Constitution.^[64] Sponsored by Representative George Hansen, it recognized parallels between the Great Law of Peace and democratic principles in the federal framework, such as federalism and checks and balances, based on ethnographic evidence from the era's framers. This non-binding measure served to honor indigenous governance influences without altering legal precedents. In the 112th Congress, H. Con. Res. 13 reaffirmed "In God We Trust" as the official national motto of the United States, supporting its public display in government buildings and on currency. Passed by the House on November 2, 2011, and the Senate on November 3, 2011, the resolution responded to ongoing litigation and cultural debates over religious references in public life, citing historical statutes from 1956 establishing the motto.^[65] It emphasized the motto's role in national heritage without mandating enforcement. These resolutions exemplify the use of concurrent measures to convey unified congressional views on military honor, cultural history, and symbolic traditions, often in response to executive or judicial actions, though lacking legal force.^[1]

State and emerging trends

In U.S. state legislatures, concurrent resolutions serve primarily for internal procedural matters, joint commemorations, memorials to Congress, and non-binding policy expressions, mirroring federal uses but adapted to state constitutions and rules. For instance, they enable ratification of proposed constitutional amendments, adjournment sine die, or creation of joint committees without gubernatorial approval. Recent examples include ceremonial recognitions, such as Louisiana's Senate Concurrent Resolution No. 7 in 2024, which commended the National Conference of State Legislatures (NCSL) on its 50th anniversary.^[66] Similarly, Arizona's Senate Concurrent Resolution 1008 and West Virginia's Senate Concurrent Resolution 20 in 2025 expressed appreciation for NCSL's role in state-federal relations.^[67]^[68] These resolutions highlight a consistent application for honoring institutions and marking milestones, often passing unanimously due to their non-controversial nature. Emerging trends reflect heightened state assertiveness amid federalism tensions and post-pandemic governance shifts. One notable pattern is the use of concurrent resolutions to invoke Article V of the U.S. Constitution, calling for a convention to propose amendments limiting federal authority, such as fiscal restraints or term limits. Kansas's Senate Concurrent Resolution 1604, introduced in the 2025-2026 session, applies for such a convention to curb federal overreach.^[69] Ohio held Senate hearings in June 2025 on similar measures, signaling ongoing momentum despite rescissions in other states, driven by concerns over national debt and executive expansion.^[70] Another trend involves legislative oversight of executive emergency powers; at least seven states authorize concurrent resolutions to terminate governors' disaster declarations, a mechanism invoked more frequently after 2020 to reassert bicameral checks, as documented by NCSL.^[71] This usage underscores causal pressures from prolonged emergencies, prioritizing empirical legislative control over unilateral executive action. Partisan polarization has amplified symbolic concurrent resolutions on national flashpoints, such as immigration enforcement or election integrity, allowing states to signal positions without risking vetoes on binding bills. While data on volume remains sparse, Quorum's 2024-2025 analyses of state legislative activity indicate resolutions comprising a growing share of non-binding outputs amid record bill introductions, often aligning with state-federal policy divergences.^[72] Critics from balanced-government advocates note this risks diluting legislative focus, yet proponents argue it fosters causal realism in federalism by documenting state preferences for potential litigation or future reforms.^[73]

Limitations and critiques

Inherent constraints and ineffectiveness

Concurrent resolutions possess inherent constraints stemming from their procedural design in bicameral legislatures, primarily the absence of executive branch involvement. Unlike bills or joint resolutions, they require passage by both chambers but are not presented to the president (or state governor in analogous state contexts) for approval or veto, thereby lacking the force of law and any binding legal effect on external entities.^[11]^[1] This structural limitation confines their utility to internal congressional operations, such as setting adjournment dates or amending joint rules, where enforcement relies solely on voluntary compliance between the houses.^[10] The non-binding nature extends to policy-oriented concurrent resolutions, often styled as "sense of Congress" measures, which express sentiments or preferences without establishing enforceable obligations or altering statutes. These resolutions carry no formal impact on public policy, as they impose no penalties for disregard by agencies, courts, or subsequent Congresses, rendering them symbolically potent but practically inert for achieving substantive change.^[43] For instance, expressions urging executive action or foreign policy stances have historically served rhetorical purposes but failed to compel implementation absent complementary legislation.^[74] Even in specialized applications like the annual concurrent budget resolution, mandated under the Congressional Budget Act of 1974, constraints manifest in limited enforceability. While providing internal targets for revenues, spending, and deficits to guide appropriations, the resolution binds Congress procedurally (e.g., via points of order) but imposes no statutory caps or automatic sequesters, allowing deviations without legal repercussions.^[31] Critics note that this has contributed to repeated shortfalls, with actual deficits frequently exceeding resolution assumptions due to the absence of external accountability mechanisms.^[75] In state legislatures, similar dynamics prevail, where concurrent resolutions for fiscal planning or policy advocacy mirror federal ineffectiveness, often yielding to overriding executive or judicial priorities.^[12] Overall, this reliance on political will rather than juridical compulsion underscores their ineffectiveness in constraining fiscal or policy outcomes amid partisan gridlock.

Partisan dynamics and symbolic overuse

Concurrent resolutions, lacking the force of law and presidential involvement, enable congressional majorities to advance partisan agendas through non-binding expressions that signal policy preferences to constituents without committing to enforceable outcomes. In unified government scenarios, the controlling party often adopts resolutions reflecting its priorities, such as budget frameworks that embed ideological spending directives opposed by the minority, as seen in the House's passage of H.Con.Res. 14 in the 119th Congress on February 25, 2025, which set fiscal year 2025 targets emphasizing deficit reduction and defense increases while rejecting Democratic alternatives.^[27] These dynamics intensify in divided Congresses, where partisan gridlock frequently prevents adoption, rendering the mechanism a tool for intra-chamber posturing rather than consensus-building.^[76] The symbolic character of many concurrent resolutions exacerbates partisan divisions, as they serve as vehicles for "sense of Congress" declarations on contentious issues like foreign aid or domestic reforms, allowing members to align with party bases electorally without substantive risk. For instance, amendments to budget concurrent resolutions often include non-binding "sense of the Senate" provisions on topics such as immigration enforcement or energy policy, providing opportunities for recorded votes that highlight partisan cleavages without altering fiscal outcomes.^[76] Empirical analysis indicates that such symbolic measures yield electoral rewards for aligned legislators, incentivizing their proliferation—Congress introduced over 200 concurrent resolutions in the 118th Congress alone, many purely expressive—yet they rarely transcend rhetoric, fostering a cycle where partisan signaling supplants legislative productivity.^[77] Critics argue this overuse undermines congressional efficacy, as the ease of passing non-binding resolutions diverts time from binding legislation, enabling partisan grandstanding that masks policy inaction. In the 116th Congress, for example, symbolic concurrent resolutions on international conflicts, such as expressions of support for allies amid partisan disputes over funding, were lambasted for prioritizing optics over strategic impact, with opponents noting they "distract from real challenges" without advancing concrete authority like war powers declarations.^[78] Such practices, while constitutionally permissible, contribute to public perceptions of dysfunction, as evidenced by approval ratings for Congress hovering below 20% during periods of resolution-heavy sessions, where symbolic outputs outpace substantive laws by margins exceeding 10:1 in some years.^[79] This pattern persists despite calls for restraint, as the low-stakes nature sustains partisan incentives over reform.

References

[1]
Types of Legislation - U.S. Senate
Concurrent resolutions are generally used to make or amend rules that apply to both houses. They are also used to express the sentiments of both of the houses.
[2]
How Our Laws Are Made - Congress.gov Resources
CONCURRENT RESOLUTIONS. A matter affecting the operations of both Houses is usually initiated by a concurrent resolution. In modern practice, and as ...
[3]
Bills & Resolutions | house.gov
A concurrent resolution originating in the House of Representatives is designated “H. Con. Res.” followed by its individual number.
[4]
Glossary - U.S. Senate
concurrent resolution – A legislative measure dealing with matters affecting both Chambers, such as a congratulatory message to another country, a concurrent ...
[5]
Deschler's Precedents, Volume 7, Chapters 22 - 25 - § 5. Concurrent ...
5.30 The House agreed to a concurrent resolution tendering the thanks of Congress to General of the Army Douglas MacArthur. On July 20, 1962,(20) the House ...Missing: definition | Show results with:definition<|separator|>
[6]
S.Con.Res.5 - 117th Congress (2021-2022): A concurrent resolution ...
Examples: "Trade Relations", "Export Controls". Include full ... 5 - A concurrent resolution setting forth the congressional budget for the United States ...
[7]
Bills and Resolutions | Statutes and Documents - Library of Congress
Concurrent resolutions relate to the operations of Congress, including both chambers, or express the collective opinion of both chambers on public policy ...<|control11|><|separator|>
[8]
Bills and Resolutions - Federal Statutes: A Beginner's Guide
May 7, 2025 · Concurrent Resolution - This type of legislation addresses matters impacting both chambers. They are not submitted to the President for ...
[9]
Congress has long struggled to pass spending bills on time
Oct 1, 2025 · April 15: House and Senate agree to a concurrent resolution on the budget. May 15: Annual appropriations bills may be considered in the House.
[10]
Bills, Resolutions, Nominations, and Treaties - Congress.gov
Aug 27, 2025 · To regulate its own internal affairs, or for other purposes where authority of law is not necessary, Congress uses a concurrent resolution ( ...<|separator|>
[11]
concurrent resolution of Congress | Wex - Law.Cornell.Edu
Examples of how concurrent resolutions are used include a statement honoring an activist, creating a joint committee of Congress, or agreeing to allow the ...
[12]
The Congressional Budget Resolution: Frequently Asked Questions
Nov 26, 2024 · It is not presented to the President for signature and does not become law. A budget resolution takes the form of a concurrent resolution (as ...
[13]
joint resolution of Congress | Wex - Law.Cornell.Edu
In practice, joint resolutions are no different from a bill. They are considered to have the same effect as a bill except that, unlike a bill introduced in ...
[14]
[PDF] CONCURRENT RESOLUTIONS - GovInfo
Concurrent Resolution, an amendment proposed thereto in the Senate to a part of the text of the resolution not embraced in any of the House amendments, when ...Missing: process | Show results with:process
[15]
Student Guide: Types of Legislation | US House of Representatives
There are four types of congressional legislation: bills, resolutions, concurrent resolutions, and joint resolutions. Each has a unique purpose.
[16]
Thomas Jefferson's Manual of Procedure - Senate.gov
In his first days as vice president, Jefferson decided to compile a manual of legislative procedure as a guide for himself and future presiding officers.
[17]
[PDF] JEFFERSON'S MANUAL - GovInfo
In the modern practice the resolving clause of the concurrent resolution is in form different from that given by Jefferson. For a history and chro- nology ...
[18]
House Practice: A Guide to the Rules, Precedents and Procedures ...
'' The Act also prescribed expedited procedures for consideration of a qualifying joint resolution passed by the other body. Debt Limit Increases The Budget ...
[19]
Constitution, Jefferson's Manual, and the Rules of the House of ...
Sec. 396. Concurrent resolutions of the two Houses. In the modern practice concurrent resolutions have been developed as a means of expressing fact, principles, ...
[20]
[PDF] PRECEDENTS United States House of Representatives - GovInfo
WICKHAM, Jr., J.D.. Parliamentarian of the House,. 2012–. VOLUME 2. COVERING PRECEDENTS THROUGH THE OPENING DAY OF.
[21]
U.S. Senate: The Civil War: The Senate's Story
In that spirit, Senator Zachariah Chandler introduced a resolution on December 5, 1861, to investigate the battles at Bull Run and Ball's Bluff, while other ...
[22]
[PDF] 77-7 MEMORANDUM OPINION FOR THE COUNSEL TO THE ...
Feb 15, 1977 · On the following day, July 21, 1868, Congress adopted a concurrent resolution 1 to the effect that the Fourteenth Amendment had been adopted by ...<|separator|>
[23]
[PDF] § 5. Concurrent Resolu- tions - GovInfo
Mar 30, 2025 · § 5.25 A legislative budget for a fiscal year was established by concurrent resolution. ... Except as specifically provided by law, they have no ...
[24]
Bills & Resolutions | house.gov
### Summary of Concurrent Resolutions in the US House of Representatives
[25]
Enactment of a Law - Congress.gov Resources
When the question of agreement to, or formal acceptance of, a resolution is raised, concurrent and simple resolutions are agreed to or adopted, whereas bills ...
[26]
Congressional Bills | GovInfo
Nov 8, 2024 · A concurrent resolution is a legislative proposal that requires the approval of both houses but does not require the signature of the President ...
[27]
H.Con.Res.14 - 119th Congress (2025-2026): Establishing the ...
This concurrent resolution establishes the congressional budget for the federal government for FY2025, sets forth budgetary levels for FY2026-FY2034, and ...
[28]
Congress.gov | Library of Congress
U.S. Congress legislation, Congressional Record debates, Members of Congress, legislative process educational resources presented by the Library of ...Most-Viewed Bills · Get Email Alerts and Updates · Members of the U.S. Congress
[29]
Search Tools | Congress.gov
Bill, resolution and amendment numbers include an alphabetical prefix and a number. To search, enter the prefix and number with or without periods and in upper ...Missing: designation | Show results with:designation
[30]
GovTrack.us: Tracking the U.S. Congress and the White House
GovTrack helps everyone learn about and track the activities of the United States Congress and the White House.Bills and Resolutions · Representatives & Senators · GovTrack.us · AboutMissing: numbering | Show results with:numbering
[31]
Introduction to the Federal Budget Process
Oct 28, 2024 · The budget resolution for the year is adopted when the House and Senate pass the identical measure, either after negotiating a conference ...<|control11|><|separator|>
[32]
[PDF] CONGRESSIONAL BUDGET AND IMPOUNDMENT CONTROL ACT ...
Sep 30, 2024 · The Act establishes a new congressional budget process, committees, a budget office, and control over executive branch impoundment of funds.
[33]
Budget Process | The U.S. House Committee on the Budget
House and Senate Committees hold hearings on the President's budget and the Budget Committees report a concurrent resolution on the budget that sets each ...<|separator|>
[34]
Concurrent Budget Resolution | www.dau.edu
While not required by the Constitution, the budget resolution process was established by the Budget Impoundment and Control Act of 1974. This act, which also ...
[35]
§113. Sec. 303. Concurrent Resolution on the Budget Must be ...
Section 303 of the CBA generally bars the consideration of spending, revenue, and debt-limit legislation for a fiscal year prior to the adoption of the budget ...
[36]
Text - H.Con.Res.14 - 119th Congress (2025-2026): Establishing the ...
Text for H.Con.Res.14 - 119th Congress (2025-2026): Establishing the congressional budget for the United States Government for fiscal year 2025 and setting ...
[37]
§114. Section 304. Permissible Revisions of Concurrent Resolutions ...
The two Houses may adopt a concurrent resolution on the budget which revises or reaffirms the concurrent resolution on the budget for such fiscal year most ...
[38]
S.Con.Res.17 - A concurrent resolution providing for a conditional ...
Con.Res.17 - A concurrent resolution providing for a conditional adjournment or recess of the Senate and an adjournment of the House of Representatives. 113th ...Missing: internal | Show results with:internal
[39]
Sessions, Adjournments, and Recesses of Congress
Jul 19, 2016 · The two houses consent to each other's sine die adjournment by adopting a concurrent resolution, called an "adjournment resolution." They use a ...Daily Sessions and Their... · Adjournment from Day to Day · Adjournment Sine Die; "Missing: internal | Show results with:internal
[40]
2.9. Adjournment - Congressional Institute
In recent Congresses, the use of concurrent resolutions to adjourn for more than three days has declined.Missing: internal | Show results with:internal
[41]
[PDF] Concurrent Resolutions.pdf - Riddick Senate Procedure
of Congress upon a given subject, to adjourn longer than 3 days, to make, amend, or suspend joint rules, and to ac- complish similar purposes, in which both ...
[42]
House and Senate Adopt Joint Rules
The seven joint rules of 1789 included procedures for transferring enacted legislation to the other body, or to the president.
[43]
“Sense of” Resolutions and Provisions | Congress.gov
Oct 16, 2019 · "Sense of" resolutions express opinions, can be simple or concurrent, and are not legally binding. They can be added to bills or resolutions.Missing: non- | Show results with:non-
[44]
Congressional Glossary
The concurrent resolution, which is not signed by the President, contains allocations of spending authority for House and Senate committees that serve as ...
[45]
H.Con.Res.3 - 118th Congress (2023-2024): Expressing the sense ...
Summary of H.Con.Res.3 - 118th Congress (2023-2024): Expressing the sense of Congress ... Concurrent Resolution. Hide Overview. Sponsor: Rep. Johnson, Mike ...
[46]
H.Con.Res.8 - 119th Congress (2025-2026): Expressing the sense ...
8 - Expressing the sense of Congress that the United States should ... Concurrent Resolution. Hide Overview. Sponsor: Rep. Tiffany, Thomas P. [R-WI-7] ...
[47]
[EPUB] Bills and Resolutions: Examples of How Each Kind Is Used
Bills and Resolutions: Examples of How Each Kind Is Used ... concurrent resolution (requiring adoption by both ... Sense of Congress" resolution (expresses "fact ...
[48]
Parliamentary Procedure: A Legislator's Guide
This guide provides basic parliamentary information in an easy-to-read format and serves as a primer on parliamentary fundamentals.
[49]
Resolutions used in the California Legislature - Capitol Weekly
Jul 2, 2025 · It requires the approval of both the Assembly and Senate, but does not require the signature of the Governor. The Senate version uses the ...
[50]
Legislative Glossary - Texas Trial Lawyers Association
CONCURRENT RESOLUTION—A type of legislative measure that requires passage by both chambers of the legislature and generally requires action by the governor. A ...
[51]
TX HCR24 | 2025-2026 | 89th Legislature - LegiScan
Texas House Concurrent Resolution 24 (Prior Session Legislation). TX State ... Signed by the Governor. 2025-03-28, Sent to the Governor. 2025-03-26, Senate ...
[52]
[PDF] Table 98-3 - National Conference of State Legislatures
Delaware. The House places simple and concurrent resolutions on a consent calendar. It takes one voice vote on the entire package. Florida. The Senate Rules and ...
[53]
[PDF] 3-1 3. BILLS AND BILL PROCESSING
Concurrent, joint or chamber resolutions are exempt from the limit. House. Imposed in 1973, the year the legislature changed to annual sessions.
[54]
COVID-19: State Actions Related to Legislative Operations
The bill provides that the concurrent resolution may provide for rules permitting distance voting or remote electronic voting. The bill takes effect upon ...
[55]
[PDF] HOUSE CONCURRENT RESOLUTION No. 5015 - Kansas Legislature
A CONCURRENT RESOLUTION relating to the adjournment of the. House of Representatives for a period of time during the 2023 regular session of the legislature. Be ...
[56]
[PDF] SENATE CONCURRENT RESOLUTIONS - North Dakota Legislative ...
Congress after recess or adjournment of the Legislative Assembly; and ... A concurrent resolution designating House and Senate ... solely dedicated to serving state ...
[57]
Concurrent Resolution - Oklahoma Policy Institute
Jan 18, 2023 · A typical example of a concurrent resolution, from the 2024 legislative session, was HCR 1012 recognizing the contributions of the Tuskogee ...
[58]
25RS Senate Resolutions with Title
Senate Concurrent Resolution 34 · S. Funke Frommeyer, A CONCURRENT RESOLUTION honoring the life of Patrick "Pat" J. Crowley. Senate Concurrent Resolution 35 · L ...
[59]
1969 Statutes of Nevada, Resolutions and Memorials
ASSEMBLY CONCURRENT RESOLUTION–Commemorating the 100th anniversary of the bill authorizing construction of the State Capitol Building. Assembly Concurrent ...
[60]
[PDF] SENATE CONCURRENT RESOLUTION NO. 21
Relating to an application to Congress for the calling of an Article V Convention of states to propose an amendment to the United States Constitution to.
[61]
TxLege Terms: Concurrent/Joint/Simple Resolutions
Apr 25, 2018 · Concurrent Resolution—A type of legislative measure that requires adoption by both chambers of the legislature and generally requires action ...
[62]
Glossary of Legislative Terms - Missouri Senate
Depending on the intended purpose, a concurrent resolution may carry the full force and effect of law. Roll Call - A recorded vote by a member used to ...<|separator|>
[63]
Catalog Record: Full committee consideration of House...
Full committee consideration of House concurrent resolution 347, tendering the thanks of Congress to General of the Army Douglas MacArthur; and H.R. 8419 ...
[64]
H.Con.Res.331 - 100th Congress (1987-1988): A concurrent ...
A concurrent resolution to acknowledge the contribution of the Iroquois Confederacy of Nations to the development of the United States Constitution.
[65]
[PDF] HISTORY OF BILLS AND RESOLUTIONS 9–1 - GovInfo
H. Con. Res. 13.— Reaffirming ''In God We Trust'' as the official motto of the United States and supporting and encouraging the public display of the ...
[66]
[PDF] 2024 Regular Session ENROLLED SENATE CONCURRENT ...
To commend the National Conference of State Legislatures on its 50th anniversary in 2025. WHEREAS, the National Conference of State Legislatures (NCSL) was ...
[67]
SENATE CONCURRENT RESOLUTION 1008 - Arizona Legislature
RECOGNIZING AND COMMENDING THE NATIONAL CONFERENCE OF STATE LEGISLATURES ON ITS FIFTIETH ANNIVERSARY IN 2025.
[68]
[PDF] Untitled - National Conference of State Legislatures
SENATE RESOLUTION. SENATE. OF THE SE. OF. SEAL. WEST. MONTANI SEMPER LIBERI. VIRGINIA. SENATE CONCURRENT RESOLUTION 20. (By Senator Smith (Mr. President).
[69]
Concurrent Resolutions - Kansas Legislature
SCR1604 - Making application to the United States congress to call a convention of the states for the purpose of proposing amendments to limit the federal ...
[70]
Mixed opinions combine in Ohio Senate hearing on constitutional ...
Jun 23, 2025 · A constitutional convention can only be held if 34 state legislatures approve an application for such a convention by invoking Article V of the ...
[71]
Resource Legislative Oversight of Emergency Executive Powers
The General Assembly by concurrent resolution may terminate a state of disaster emergency. If the governor vetoes the concurrent resolution, the General ...
[72]
2025 State Legislative Trends Report | Quorum
From AI regulations to school vouchers to abortion laws, states across the country are taking on hot-button issues that Congress isn't addressing. We analyzed ...
[73]
Stopping a Dangerous Article V Convention - Common Cause
Under Article V of the U.S. Constitution, Congress is required to hold a constitutional convention if two-thirds of state legislatures (34 states) call for one.Missing: concurrent | Show results with:concurrent
[74]
"Sense of" Resolutions and Provisions - EveryCRSReport.com
"Sense of" resolutions are formal expressions of opinion by Congress, either as simple or concurrent resolutions, and are not legally binding.Missing: statements | Show results with:statements
[75]
[PDF] Joint vs. Concurrent Budget Resolution - Introduction Option 1
The principal advantage of a joint resolution over a concurrent resolution is that the levels could be made legally binding. A breach of its spending limits ...
[76]
Symbolic amendments and the politics of budget resolutions
May 12, 2017 · Symbolic amendments—Sense of the Senate and deficit neutral reserve fund amendments—generally offer one of two benefits: an opportunity to ...Missing: criticism | Show results with:criticism
[77]
Worth a Try? The Electoral Consequences of Symbolic Legislation
Feb 3, 2025 · Our experimental results demonstrate that, assuming shared party and issue position, symbolic legislation is strongly rewarded.
[78]
Why We Voted Against the War Powers Resolution
Jan 11, 2020 · It addressed a de-escalated conflict with a symbolic vote that did more to distract than to fix the real challenges we face. If Congress wants ...<|separator|>
[79]
What Is a 'Sense of Congress' Resolution? - ThoughtCo
Jul 2, 2021 · Through simple or concurrent resolutions, both houses of Congress may express formal opinions about subjects of national interest. As such these ...