Insight
September 12, 2023
CRA Tracker: Congressional Review Act in Recent Years
EXECUTIVE SUMMARY
- The Congressional Review Act (CRA) allows Congress to effectively void rules promulgated by federal agencies.
- Due to the CRA’s structure, however, it has been seldom used as to be successful, and it typically must be used when a new president from a different party than the predecessor enters the White House and the new president’s party fully controls Congress.
- This tracker follows the status of CRA resolutions: At the end of the 117th Congress, 23 resolutions of disapproval had been introduced. Three passed through both houses of Congress and were signed by the president.
INTRODUCTION
The Congressional Review Act (CRA) allows Congress to strike down regulations issued by federal agencies. If a resolution of disapproval pertaining to a rule is passed by both chambers of Congress and signed by the president, the rule becomes void and the agency that issued the rule cannot issue a rule in “substantially the same form” in the future.
Due to the CRA’s structure, it is seldom successful. Two significant hurdles limit its use. First, presidents are highly unlikely to sign a disapproval resolution of a rule their administration issued. Second, Congress must typically be under the full control of the party opposite the administration that issued the rule. Successful resolutions, as a result of these two hurdles, typically only occur when the White House changes hands to a different party and the incoming president’s party controls Congress.
Republicans used the CRA in 2017 to repeal many Obama Administration rules by taking advantage of the CRA’s lookback provision, which allows a new Congress to consider CRA resolutions on rules issued in the last 60 session days of the previous Congress. Resolutions introduced on these rules also fall under the category of rules subject to the CRA’s expediting procedures, which allow resolutions to pass on a simple majority rather than the supermajority required to overcome a Senate filibuster.
For the 117th Congress, with Democrats in full control of Congress and the White House, 23 resolutions of disapproval were introduced with three eventually getting signed into law. Five of the 23 were introduced under the lookback provision, the window for which closed in early April 2021 such that no new resolutions could be introduced under that provision.
With divided control in the 118th Congress, and while there is limited prospect for any resolution to ultimately succeed, the CRA process does provide Republicans with the opportunity to demonstrate their disapproval of Biden Administration regulatory actions. The section below documents the rules challenged during the 117th Congress, as well as a running tally of those with some CRA action in the current Congress.
THE 118TH CONGRESS
RULES SUBJECT TO THE LOOKBACK PROVISION
Department of Commerce (Commerce)
Rule Published: September 16, 2022
Resolution of Disapproval introduced: January 26, 2023 (House) and February 16, 2023 (Senate); March 7, 2023 (Second House Version)
Status: Passed House (April 28, 2023); Passed Senate (May 3, 2023) Vetoed (May 16, 2023)
What the rule does: The rule temporarily relieves tariffs on certain solar panel components imported from particular Southeast Asian countries.
Employee Benefits Security Administration (EBSA)
Prudence and Loyalty in Selecting Plan Investments and Exercising Shareholder Rights
Rule published: December 1, 2022
Resolution of Disapproval introduced: February 7, 2023 (Senate) (House)
Status: Passed House (February 28, 2023); Passed Senate (March 1, 2023); Vetoed (March 20, 2023)
What the rule does: The rule allows plan fiduciaries to consider climate change and other environmental, social and governance factors when they select retirement investments and exercise shareholder rights, repealing changes made during the Trump Administration.
Estimated economic impact: The rule cost an estimated $117.2 million, according to EBSA.
*Previously introduced in 117th Congress*
Department of Veterans Affairs
Rule Published: September 9, 2022
Resolution of Disapproval introduced: February 7, 2023 (Senate) (House)
Status: Introduced
What the rule does: The rule removed exclusions to abortion counseling and services for service members and civilians covered under a Department of Veterans Affairs health plan.
*Previously introduced in 117th Congress*
Fish and Wildlife Service
Rule Published: November 25, 2022
Resolution of Disapproval introduced: February 7, 2023 (Senate) (House)
Status: Passed Senate (May 3, 2023); Passed House (July 27, 2023)
What the rule does: The rule added the lesser prairie chicken in two distinct population segments to the List of Endangered and Threatened Wildlife.
*Previously introduced in 117th Congress*
Endangered and Threatened Wildlife and Plants; Endangered Species Status for Northern Long-Eared Bat
Rule Published: November 30, 2022
Resolution of Disapproval introduced: March 30, 2023 (Senate) (House)
Status: Passed Senate (May 11, 2023); Passed House (July 27, 2023)
What the rule does: The rule would “reclassify the northern long-eared bat (Myotis septentrionalis), a bat species found in all or portions of 37 U.S. States, the District of Columbia, and much of Canada, as an endangered species under the Endangered Species Act of 1973, as amended (Act).”
Fish and Wildlife Service/Commerce
Rule Published: June 24, 2022
Resolution of Disapproval introduced: March 30, 2023 (Senate) (House)
Status: Passed Senate (May 11, 2023)
What the rule does: The rule rescinds a Trump-era rule on the titular subject.
Department of Homeland Security (DHS)
Public Charge Ground of Inadmissibility
Rule published: September 9, 2022
Resolution of Disapproval introduced: March 8, 2023 (House) (Senate)
Status: Passed Senate (May 17, 2023)
What the rule does: The rule sets out the conditions under which a noncitizen can be denied certain government benefits if found to be “likely to become primarily dependent on the government for assistance.” The rule makes changes to the program from a controversial Trump Administration rule.
Estimated economic impact: The rule cost an estimated $45.1 million, according to DHS.
*Previously introduced in 117th Congress*
Department of Education (ED)
Rule published: October 12, 2022
Resolution of Disapproval introduced: March 28, 2023 (House) (Senate)
Status: Passed House (May 24, 2023); Passed Senate (June 1, 2023)
What the rule does: The rule implements President Biden’s student debt cancellation policy through the “waivers and modifications of statutory and regulatory provisions” authority ascribed to ED under the Higher Education Relief Opportunities for Students Act of 2003 (HEROES Act or Act).
RULES ISSUED DURING THE 118TH CONGRESS
Environmental Protection Agency (EPA)/Army Corps of Engineers (Corps)
Revised Definition of “Waters of the United States”
Rule published: January 18, 2023
Resolution of Disapproval introduced: February 2, 2023 (Senate) (House)
Status: Passed House (March 9, 2023); Passed Senate (March 29, 2003); Vetoed (April 6, 2023)
What the rule does: “The latest rule essentially restores the pre-2015 definition of WOTUS – but modifies it to incorporate the prevailing opinion in a 2006 Supreme Court case known as Rapanos. That opinion established that WOTUS covers any water feature with a ‘significant nexus’ to a navigable water.”
Environmental Protection Agency (EPA)
Control of Air Pollution From New Motor Vehicles: Heavy-Duty Engine and Vehicle Standards
Rule Published: January 24, 2023
Resolution of Disapproval introduced: February 9, 2023 (Senate); April 6, 2023 (House)
Status: Passed Senate (April 26, 2023); Passed House (May 23, 2023); Vetoed (June 14, 2023)
What the rule does: The rule establishes stricter emissions standards regarding “criteria pollutants” (such as ozone and particulate matter) for heavy-duty vehicles beginning in “model year” 2027.
Estimated economic impact: The rule cost an estimated $39 billion, according to EPA.
Federal ‘‘Good Neighbor Plan’’ for the 2015 Ozone National Ambient Air Quality Standards
Rule Published: June 5, 2023
Resolution of Disapproval introduced: June 8, 2023 (Senate)
Status: Introduced
What the rule does: The rule “finalizes Federal Implementation Plan (FIP) requirements to address 23 states’ obligations to eliminate significant contribution to nonattainment, or interference with maintenance, of the 2015 ozone National Ambient Air Quality Standards (NAAQS) in other states.”
Estimated economic impact: The rule cost an estimated $9.4 billion, according to EPA.
Bureau of Alcohol, Tobacco, Firearms, and Explosives (ATF)
Factoring Criteria for Firearms With Attached “Stabilizing Braces”
Rule Published: January 31, 2023
Resolution of Disapproval introduced: March 15, 2023 (Senate); March 17, 2023 (House)
Status: Passed House (June 13, 2023)
What the rule does: “The primary purpose of the rule is to amend the official categorization of certain firearms that include a “stabilizing brace” to determine whether the firearms in question qualify as handguns or rifles. This taxonomy has important implications for the legal requirements involved in the registration and/or sale and transfer of such arms.”
Estimated economic impact: The rule cost an estimated $1.9 billion, according to ATF.
Consumer Financial Protection Bureau (CFPB)
Small Business Lending under the Equal Credit Opportunity Act (Regulation B)
Rule Published: March 30, 2023 [Posted by CFPB, not in Federal Register]; May 31, 2023 [Posted to Federal Register]
Resolution of Disapproval introduced: April 3, 2023 (House); May 31, 2023 (Re-introduced in House with FR citation)
Status: Introduced
What the rule does: The rule establishes the “collection and subsequent publication of more robust and granular data regarding credit applications for small businesses” by affected creditors under Section 1071 of Dodd-Frank in order to further examine certain demographic trends.
Department of Labor (DOL)
Rule Published: February 28, 2023
Resolution of Disapproval introduced: April 25, 2023 (House) (Senate)
Status: Introduced
What the rule does: The rule updates how DOL determines the wage rates for affected workers in order “to meet its statutory obligation to certify that the employment of H-2A foreign workers will not have an adverse effect on the wages of agricultural workers in the United States similarly employed.”
Rule Published: March 1, 2023
Resolution of Disapproval introduced: May 11, 2023 (House) (Senate)
Status: Introduced
What the rule does: The rule repeals an Trump Administration rule that expanded the scope of a religious exemption for anti-discrimination rules pertaining to government contractors.
Department of Transportation (DOT)
Waiver of Buy America Requirements for Electric Vehicle Chargers
Rule Published: February 21, 2023
Resolution of Disapproval introduced: July 26, 2023 (Senate)
Status: Introduced
What the rule does: “The Federal Highway Administration (FHWA) is establishing a temporary public interest waiver to waive Buy America requirements for steel, iron, manufactured products, and construction materials in electric vehicle (EV) chargers.”
Food and Nutrition Service (FNS)
Rule Published: Original memo published May 5, 2022; Government Accountability Office determination that action is a “rule” under the CRA transmitted to Congress June 7, 2023
Resolution of Disapproval introduced: July 27, 2023 (Senate)
Status: Introduced
What the rule does: FNS published a policy memorandum “to provide direction to state agencies and program operators regarding processing program complaints that allege discrimination on the basis of gender identity and sexual orientation in programs or activities receiving federal financial assistance from FNS.”
Department of Homeland Security (DHS)/Department of Justice (DOJ)
Circumvention of Lawful Pathways
Rule Published: May 16, 2023
Resolution of Disapproval introduced: July 27, 2023 (House) (Senate)
Status: Introduced
What the rule does: The rule sets out a series of policies regarding how migrants can apply for asylum “in anticipation of a potential surge of migration at the southwest border” in light of the lapse in emergency “Title 42” authority claimed by the agencies during the now-expired public health emergency.
Estimated economic impact: The rule involves $7.6 million in annual costs associated primarily with administrative burdens from new paperwork.
Department of Education (ED)
Rule Published: July 10, 2023
Resolution of Disapproval introduced: September 5, 2023 (House) (Senate)
Status: Introduced
What the rule does: The rule “amends the regulations governing the income contingent repayment (ICR) and income-based repayment (IBR) plans and renames the categories of repayment plans available in the Department’s Direct Loan Program.”
THE 117TH CONGRESS
RULES SUBJECT TO THE LOOKBACK PROVISION
Environmental Protection Agency (EPA)
Oil and Natural Gas Sector: Emission Standards for New, Reconstructed, and Modified Sources Review
Rule published: September 14, 2020
Resolution of Disapproval introduced: March 25, 2021 (Senate) and March 26, 2021 (House)
Status: Passed Senate (April 28, 2021); Passed House (June 25, 2021); Signed (June 30, 2021)
What the rule does: The rule scaled back and eliminated some of the requirements of an Obama Administration rule on methane emissions stemming from oil and natural gas production. The Trump Administration EPA believed the Obama-era regulations were redundant and that the Clean Air Act requires the agency to find that methane emissions from certain sources are harmful to public health. Opponents of the rule believe the Trump-era changes will result in detrimental increases in methane emissions.
Estimated economic impact: The rule saved an estimated $31 million, according to EPA.
Office of the Comptroller of the Currency (OCC)
National Banks and Federal Savings Associations as Lenders
Rule published: October 30, 2020
Resolution of Disapproval introduced: March 25, 2021 (Senate) and March 26, 2021 (House)
Status: Passed Senate (May 11, 2021); Passed House (June 24, 2021); Signed (June 30, 2021)
What the rule does: The rule defines when banks and savings associations are considered “true lenders” when they work with third parties to facilitate lending. The OCC rule clarifies that true lenders are those named as the lender as of the origination date of the loan. Opponents of the rule argue that it does little to stop third parties from “renting” a bank’s charter to allow the third party to take advantage of certain rights granted to lenders. The OCC says it addressed this criticism in the preamble to the final rule.
Securities and Exchange Commission (SEC)
Procedural Requirements and Resubmission Thresholds Under Exchange Act Rule 14a-8
Rule published: November 4, 2020
Resolution of Disapproval introduced: March 25, 2021 (Senate) and March 26, 2021 (House)
Status: Introduced
What the rule does: The rule made changes to SEC regulations governing what shareholder proposals must be published in a company’s shareholder proxy statements. Since the costs to publish the proxy statements are borne entirely by the company, the SEC has traditionally set out guidelines by which a company may deny publishing shareholder proposals. The SEC updated these guidelines in 2020 making them more restrictive to shareholders, in part because technology has improved shareholders’ ability to make and disseminate proposals. Opponents of the rule argue the new restrictions are too one-sided.
Estimated economic impact: The rule saved an estimated $10.5 million, according to the SEC.
The Enhancement and Standardization of Climate-Related Disclosures for Investors
Proposed rule published: April 11, 2022
Resolution of Disapproval introduced: June 15, 2022 (House)
Status: Introduced
What the rule does: The proposed rule would require publicly traded companies to provide certain climate-related information in their registration statements and annual reports. The proposed rule would require information about a registrant’s climate-related risks that are reasonably likely to have a material impact on its business, results of operations, or financial condition. on
Estimated economic impact: The proposed rule would cost an estimated $19.1 billion, according to the SEC.
Social Security Administration (SSA)
Hearings Held by Administrative Appeals Judges of the Appeals Council
Rule published: November 16, 2020
Resolution of Disapproval introduced: April 1, 2021 (House)
Status: Introduced
What the rule does: The SSA issued the rule to clarify when its administrative appeals judges (AAJs) may hold hearings on individual cases. The SSA argues while it has always had the authority to let AAJs hold hearings, it just has not used it often (instead it typically has administration law judges [ALJs] hold hearings). SSA argues that using AAJs can help it handle situations when caseloads are abnormally high. Opponents contend that the Administrative Procedure Act and recent court precedent only allow for ALJs.
RULES ISSUED DURING THE 117TH CONGRESS
Equal Employment Opportunity Commission (EEOC)
Update of Commission’s Conciliation Procedures
Rule published: January 14, 2021
Resolution of Disapproval introduced: March 23, 2021 (House) (Senate)
Status: Passed Senate (May 19, 2021); Passed House (June 24, 2021); Signed (June 30, 2021)
What the rule does: The rule updated the procedures for “conciliation,” or the pre-litigation settlement of discrimination charges filed under the Civil Rights Act, the Americans with Disabilities Act, the Genetic Identification Nondiscrimination Act, and the Age Discrimination in Employment Act. While the Trump Administration’s EEOC said the rule was necessary to improve transparency and make the conciliation process more consistent, those supporting the resolutions of disapproval argue it unfairly tilts the process in the favor of employers.
Department of Health and Human Services (HHS)
Securing Updated and Necessary Statutory Evaluations Timely
Rule published: January 19, 2021
Resolution of Disapproval introduced: March 29, 2021 (House)
Status: Introduced
What the rule does: The rule required HHS and its agencies to review most of their regulations within 10 years. If such a review on a regulation does not occur over that time, the regulation would sunset, or expire. The goal of sunsetting is to force agencies to review their rules to make sure they are working as intended, that their expected benefits and costs were accurate, and that they are updated as appropriate. Opponents claim the sunsetting provision could force the expiration of needed regulations and unduly burden agency time and resources.
Estimated economic impact: The rule saved an estimated $104.5 million, according to HHS.
Medicare and Medicaid Programs; Omnibus COVID-19 Health Care Staff Vaccination
Rule published: November 5, 2021
Resolution of Disapproval introduced: December 9, 2021 (House)(Senate)
Status: Passed Senate (March 2, 2022)
What the rule does: The rule requires all staff working at facilities that participate in Medicare and Medicaid to be vaccinated by January 4, 2022.
Estimated economic impact: The rule cost an estimated $1.4 billion, according to HHS.
Rule published: August 6, 2021
Resolution of Disapproval introduced: August 10, 2021 (Senate)
Status: Introduced
What the rule does: The order was an attempt to re-issue a moratorium on evictions that had expired in July 2021 following the Supreme Courts determination that Congressional action would be necessary. Unsurprisingly, the Supreme Court struck down this order in August 2021 rendering the CRA resolution moot.
Requirement for Persons to Wear Masks While on Conveyances and at Transportation Hubs
Rule Published: February 3, 2021
Resolution of Disapproval introduced: February 10, 2022 (Senate); February 18, 2022 (House)
Status: Introduced
What the rule does: The rule requires persons traveling persons to wear masks over the mouth and nose when traveling on any conveyance (e.g., airplanes, trains, subways, buses, taxis, ride-shares, ferries, ships, trolleys, and cable cars) into or within the United States. A person must also wear a mask on any conveyance departing from the United States until the conveyance reaches its foreign destination. Additionally, a person must wear a mask while at any transportation hub within the United States (e.g., airport, bus terminal, marina, train station, seaport or other port, subway station, or any other area that provides transportation within the United States).
Vaccine and Mask Requirements to Mitigate the Spread of COVID-19 in Head Start Programs
Rule Published: November 30, 2021
Resolution of Disapproval introduced: February 14, 2022 (Senate); April 21, 2022 (House)
Status: Introduced
What the rule does: The rule requires universal masking for all individuals two years of age and older, with some noted exceptions, and all Head Start staff, contractors whose activities involve contact with or providing direct services to children and families, and volunteers working in classrooms or directly with children to be vaccinated for COVID-19 by January 31, 2022.
Estimated economic impact: The rule cost an estimated $49.5 million, according to HHS.
Ensuring Access to Equitable, Affordable, Client-Centered, Quality Family Planning Services
Rule Published: October 7, 2021
Resolution of Disapproval introduced: March 16, 2022 (House)(Senate)
Status: Introduced
What the rule does: The rule removes restrictions on nondirective options counseling and referrals for abortion services and eliminates requirements for strict physical and financial separation between abortion-related activities and project activities under Title X of the Public Health Service Act.
Estimated Economic Impact: The rule cost an estimated $1.6 million, according to HHS.
Rule Published: September 27, 2021
Resolution of Disapproval introduced: March 23, 2022 (House)(Senate)
Status: Introduced
What the rule does: The rule makes several revisions to Affordable Care Act exchanges for 2022.
Estimated Economic Impact: The rule saved an estimated $1.3 billion, according to HHS.
Occupational Safety and Health Administration (OSHA)
COVID-19 Vaccination and Testing; Emergency Temporary Standard
Rule published: November 5, 2021
Resolution of Disapproval introduced: November 17, 2021 (House) (Senate)
Status: Passed Senate (December 8, 2021)
What the rule does: The rule requires employers with 100 or more employees to establish and enforce a policy requiring employees to be vaccinated for COVID-19 or submit to mask-wearing and weekly testing by January 4, 2022.
Estimated economic impact: The rule cost an estimated $3 billion, according to OSHA.
Bureau of Alcohol, Tobacco, Firearms, and Explosives (ATF)
Definition of “Frame or Receiver” and Identification of Firearms
Rule published: April 26, 2022
Resolution of Disapproval introduced: April 27, 2022 (Senate); May 6, 2022 (House)
Status: Introduced
What the rule does: The rule expands the definition of firearms to include privately made firearms and gun kits. It also requires kits sold commercially that can be readily assembled by a purchaser to have serial numbers. In addition, if a gun retailer buys a firearm without a serial number from a gun owner, the retailer must serialize the gun before reselling it. In addition to the serial number requirements, the rule requires gun kit retailers to conduct background checks. The rule also amends recordkeeping requirements to obligate retailers of all firearms to keep records for as long as they are licensed to sell, up from the previous minimum of 20 years.
Estimated economic impact: The rule cost an estimated $100.4 million, according to ATF.
Department of Homeland Security (DHS)
Rule published: March 29, 2022
Resolution of Disapproval introduced: April 28, 2022 (House) (Senate)
Status: Introduced
What the rule does: The rule amends regulations governing the procedures for determining certain protection claims and available parole procedures for individuals subject to expedited removal and found to have a credible fear of persecution or torture.
Public Charge Ground of Inadmissibility
Rule published: September 9, 2022
Resolution of Disapproval introduced: September 21, 2022 (House); November 14, 2022 (Senate)
Status: Introduced
What the rule does: The rule sets out the conditions under which a noncitizen can be denied certain government benefits if found to be “likely to become primarily dependent on the government for assistance.” The rule makes changes to the program from a controversial Trump Administration rule.
Estimated economic impact: The rule cost an estimated $45.1 million, according to DHS.
National Highway Traffic Safety Administration (NHTSA)
Rule published: April 1, 2022
Resolution of Disapproval introduced: April 28, 2022 (House)
Status: Introduced
What the rule does: The rule repeals a 2021 interim final rule that reduced civil penalties for violating the corporate average fuel economy standards starting in model year 2022.
Council on Environmental Quality (CEQ)
National Environmental Policy Act Implementing Regulations Revisions
Rule published: April 20, 2022
Resolution of Disapproval introduced: July 13, 2022 (Senate); July 19, 2022 (House)
Status: Passed Senate (August 4, 2022)
What the rule does: The rule repeals parts of a 2020 final rule that aimed to streamline NEPA requirements for federally funded projects.
Department of Education
Rule published: July 6, 2022
Resolution of Disapproval introduced: September 8, 2022 (Senate); September 9, 2022 (House)
Status: Introduced
What the rule does: The rule places additional requirements on charter schools seeking federal funding, including proving a need and community support for the charter school, analyzing the school’s enrollment, and disclosing contracts with for-profit entities.
Employee Benefits Security Administration (EBSA)
Prudence and Loyalty in Selecting Plan Investments and Exercising Shareholder Rights
Rule published: December 1, 2022
Resolution of Disapproval introduced: December 1, 2022 (Senate); December 15, 2022 (House)
Status: Introduced
What the rule does: The rule allows plan fiduciaries to consider climate change and other environmental, social and governance factors when they select retirement investments and exercise shareholder rights, repealing changes made during the Trump Administration.
Estimated economic impact: The rule cost an estimated $117.2 million, according to EBSA.
Department of Veterans Affairs
Rule Published: September 9, 2022
Resolution of Disapproval introduced: December 13, 2022 (Senate)(House)
Status: Introduced
What the rule does: The rule removed exclusions to abortion counseling and services for service members and civilians covered under a Department of Veterans Affairs health plan.
Fish and Wildlife Service
Rule Published: November 25, 2022
Resolution of Disapproval introduced: December 21, 2022 (Senate)(House)
Status: Introduced
What the rule does: The rule added the lesser prairie chicken in two distinct population segments to the List of Endangered and Threatened Wildlife.
