Agency has to decide what will sell and its ability to achieve it. Agency decisions are documented and price tags attached. The Executive Branch takes a stand, and asks for money. House and Senate hold hearings on President's request. Congressional appropriators attempt to figure out what is behind President's numbers and words.
Agency works the system, attempting to influence outcomes.
September 1999 House and Senate debate and vote in floor action. THE CR September 1999 Continuing Resolution, or stop-gap spending measure, used if time runs out. Otherwise, shutdown . Congress finally makes up its mind, and passes bill. President vetoes or signs bill.