A continuing resolution is supposed to grant additional time for Congress to pass, and the president to sign, appropriations acts. But occasionally this process has broken down in the heat of political combat over the budget. The time period specified in a continuing resolution has expired without agreement on appropriations acts or even on a new continuing resolution. In theory, the absence of either appropriations acts or a continuing resolution should cause the entire federal government to "shut down," that is, to cease all operations and expenditures for lack of funds. (Shutdown occurred during the bitter battle between President Bill Clinton and the Republican- controlled Congress over the Fiscal Year 1996 budget.) But in practice, shutdowns have been only partial, affecting only "nonessential" government employees and causing relatively little disruption.