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In short, Congress. Before the act was passed in 1921, there was no formal process for producing one, coherent budget. Allocations were given according to rules set by Congress, which were subject to frequent changes. This left the president and executive branch very little say over the budget and the distribution of revenue. Executive departments submitted budget requests in a far less formalized manner and it was up to Congress to decide how much each one actually recieved. Only the Secretary of the Treasury had a significant influence over the budget outside of Congress. It's rather difficult to give a more elaborate answer because prior to 1921, there really was no semblance of a "process". This is not to say it was completely sporadic, just not very regulated or defined.

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