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On the basis of the Constitution and traditional legislative prerogatives, Congress lays claim to exclusive control over the purse. Nevertheless, while it is up to Congress to appropriate funds, it is also true that the President and the executive branch enjoy considerable discredoY as to how those funds are spent. Existing studies tell us how the President formulates the budget and how Congress acts on the budget requests he submits. Surprisingly, we know relatively little about how the money, once appropriated, is actually spent. A notable exception in this field is a work by Lucius Wilmerding, Jr., published three decades ago.1 The purpose of this article is to present a more contemporary account of executive spentding discretion, to show its impact on public policy, and to point to some of the techniques and procedures used by Congress to preserve its power of the purse. Although the President's spending discretion may seem essentially a twentieth century phenomenon, resulting primarily from the Budget and Accounting Act of 1921 it has been a problem since George Washington's first administration. A number of early examples underscore that fact and add historical perspective and balance to this presentation. The material is organized under seven main headings: lump-sum appropriations, covert financing, transfers between classes, reprogramming, transfers in time, impoundment, and unauthorized commitments. Within those broad categories are smaller sections on such topics as contingency funds, military assistance, no-year money, accelerated procurement, and coercive deficiencies. A number of these categories overlap, resulting in a certain arbitrariness in organization.

Presidential Spending Discretion and Congressional Controls