In theory, Congress is supposed to pass 12 appropriations bills by the end of each fiscal year to fund discretionary spending on defense, as well as non-defense programs like veterans’ benefits, education, transportation, and health. In practice, that hasn’t happened in more than a quarter century. This year will be no different. Despite repeated promises to return to a more orderly annual budget process, funding the federal government for three months with a stopgap measure, known as a continuing resolution (C.R.), is the best that Congress can muster. Over the weekend, Speaker of the House M…