Historian David Kennedy points out that Franklin D. Roosevelt was a fiscal conservative. On Social Security which FDR signed into law in 1935, he insisted that it be self-supporting, saying "no dole." Deficits of the "New Deal" Roosevelt would say were a result of the "emergency budgets." Only in 2 of the New Deal Years 1934 and 1936 did the federal deficit as a percentage of Gross National Product exceed the 4.6% of Herbert Hoover's last year in office. The 1936 absolute deficit of $4.4 billion or 5.3% of GNP was largely because of the $2 billion Bonus Bill passed by Congress over Roosevelt's veto, which awarded the money to World War 1 veterans.