Congress may not be able to pass all 12 spending bills for fiscal 2010 separately because Democratic leaders are hoping to finish a health care bill before the holidays. Those still unfinished likely will be rolled into an omnibus bill and passed.

The federal government is operating under its second continuing resolution since the fiscal year started Oct. 1. It will expire Dec. 18, which is when Congress expects to adjourn for the holidays.

Five of the 12 bills have been signed into law. Three others have passed both the House and Senate and are awaiting conferences to work out differences between the versions. Of the remaining four, all have passed the House. The Senate plans to finish work on the military construction and Veterans Affairs bill this week, but three others have been approved only at the committee level: financial services and general government; Labor, Health and Human Services and Education; and State and foreign operations.

An omnibus bill is several bills rolled into one to quickly pass measures that are controversial or stalled. Many legislators prefer to pass spending bills individually because it allows for debate on each program's spending, instead of debating a massive bill funding multiple agencies.

The transition in administrations delayed this year's budget cycle, as the Obama administration released its final budget details in May. Budgets are usually released in early February.

"It's understandable that they're late this year," said Stan Collender, a former House and Senate budget committee staffer. "Next year, I won't be so forgiving, and no one else should be either."

Sen. Byron Dorgan, D-N.D., defended the Senate's progress on the spending bills this year.

"We will pass appropriations bills this year in great contrast to years previous when there have been big omnibus bills," he said Oct. 14.

Collender said whatever progress Congress made this year could be reversed next year, when Congress is expected to take more recesses in preparation for the 2010 midterm elections.