What Is a Continuing Resolution—and What Does It Mean for Tribal Early Learning and Child Care?

As Congress works through another high-stakes budget season, you may have heard the term “Continuing Resolution” or “CR” in the news. With the recent shutdown finally ending after more than a month, understanding what a CR is—and what it means specifically for Tribal Nations, child care, and early learning programs—is more important than ever.

Here’s a simple breakdown.

What Is a Continuing Resolution?

A Continuing Resolution (CR) is a temporary funding measure Congress uses when it has not finished passing the full set of annual federal appropriations bills by the start of the new fiscal year on October 1.

Rather than shutting the government down entirely, a CR keeps federal agencies open by:

• Extending last year’s funding levels,

• For a defined period of time—sometimes a few weeks, often a few months.

Think of it as Congress “pressing pause” on final decisions so the federal government doesn’t shut down while negotiations continue.

Why Does Congress Use CRs?

Continuing Resolutions are used because:

• Federal agencies cannot spend money without Congressional authorization.

• Appropriations bills are complex and often delayed due to policy disagreements.

• Essential services—from food access to health care to early education—cannot simply stop.

Without a CR (or full appropriations), the government enters a shutdown, which disrupts federal programs, Tribal operations, and direct services for families.

What a CR Means for Tribal Early Childhood Systems

1. Funding Continues — But Without Adjustments

   1. A CR keeps programs operating, but at last year’s funding levels. This impacts Tribal early learning systems in important ways:

      1. Child Care and Development Fund (CCDF/CCDBG): Forward-funded and relatively stable in the short term, but a CR means no new increases, even as costs rise.

      2. Head Start / Early Head Start: A CR stabilizes grant flow, but does not address staffing shortages, inflation, or program expansions that many Tribal communities desperately need.

      3. Tribal MIECHV (Home Visiting): Programs can continue, but delays in federal processing can affect reimbursements or contracts.

   2. In other words: a CR keeps programs alive, but not necessarily healthy.

2. No New Investments for Native Children

   1. Because a CR essentially holds the federal budget in place, it also stalls progress on:

      1. Increasing the Tribal CCDBG set-aside,

      2. Strengthening Tribal workforce supports,

      3. Advancing recommendations from the Commission on Native Children,

      4. Implementing new Tribal early childhood initiatives,

      5. Addressing urgent needs identified by Tribal governments.

   2. Tribal Nations continue operating with outdated funding levels, despite growing populations, rising program costs, and ongoing workforce pressures.

Continued Uncertainty for Tribal Programs

A CR buys time—but not stability.

Tribal child care and early learning programs continue to face:

• Delayed federal guidance

• Slowed grant processing

• Lack of clarity on future funding amounts

• Difficulty planning for the full fiscal year

• Stress on Tribal administrators who must manage around federal delays

When Congress relies on repeated CRs, this uncertainty becomes chronic.

Why Continuing Resolutions Matter for Native Children

Continuing Resolutions keep the lights on, but they rarely reflect the true cost of serving Native families. Tribal programs are already underfunded, and operating with outdated budgets makes it harder to:

• Recruit and retain qualified early childhood educators

• Expand child care access

• Support cultural and language programming

• Maintain facilities and transportation

• Ensure continuity for Native children and families

For communities working hard to build strong, culturally-rooted early childhood systems, long-term funding stability is essential.

Where We Go From Here

Now that the shutdown has ended and the government is operating under a new CR, Congress still must complete its work on the FY26 appropriations process.

Tribal Nations and early childhood advocates have a critical opportunity to:

• Urge Congress to prioritize Tribal early learning and care

• Push for increased investments in CCDBG, Head Start, MIECHV, and Tribal workforce development

• Share the real impacts of budget instability on Native children, families, and educators

• Invite policymakers to visit Tribal programs and see firsthand how funding supports community well-being

NICCA will continue monitoring the budget process closely and sharing the information you need to stay informed—and stay engaged.

If you would like support crafting advocacy messages, preparing program stories, or coordinating outreach to Congressional offices, check out our advocacy training.