Budget Process Improvement Act of 2013 - Amends the Congressional Budget Act of 1974 (CBA) to require: (1) the Director of the Congressional Budget Office (CBO) to include a descriptive analysis for the second decade budget impact of a measure when submitting a cost estimate of it, and (2) the Joint Committee on Taxation (JCT) to provide such an analysis when its submitting revenue estimates to CBO.
Requires the Office of Management and Budget (OMB) to publish a report on the size, scope, risk, and cost of the contingent federal liabilities, including the implicit guarantees to government sponsored enterprises (GSEs) such as the Federal National Mortgage Association (Fannie Mae) and the Federal Home Loan Mortgage Corporation (Freddie Mac).
Requires the Secretary of the Treasury to conduct performance reviews of JCT-identified tax expenditures on an ongoing basis.
Requires OMB to: (1) develop a proposal for the implementation of an accrual-based accounting system for certain portions of the budget, and (2) report to Congress on legislation necessary to implement such system.
Requires the JCT to publish a report that projects annual federal revenues by source over the next 10 fiscal years and includes a discussion of the assumptions used to project such revenues.
Amends the CBA to require: (1) biennial (instead of annual) budget resolutions, (2) biennial appropriations Acts, and (3) biennial government strategic and performance plans.
Makes conforming amendments to the Rules of the House of Representatives.
Defines the budget biennium as the two consecutive fiscal years beginning on October 1 of any odd-numbered year.
Requires: (1) a federal agency, upon request by a congressional committee, to provide appropriate information regarding its appropriations requests and program administration; (2) the Comptroller General to furnish to such committee summaries of any audits or reviews of such program which the Comptroller General has completed during the preceding six years; and (3) the Comptroller General, Director of the Congressional Budget Office (CBO), and the Director of the Congressional Research Service (CRS) to furnish such committee appropriate information, studies, analyses, and reports.
Requires the Director of the Office of Management and Budget (OMB) to determine and report to Congress on the impact and feasibility of changing the definition of a fiscal year, and the budget process based on that definition, to a two-year fiscal period with a biennial budget process based on such period.
Requires the President's budget submission for FY2016 to include: (1) an identification of the budget accounts for which an appropriation should be made for each fiscal year of the FY2016-FY2017 biennium, and (2) budget authority that should be provided for each such fiscal year for the budget accounts.
Directs: (1) the House and Senate committees, during the first session of the 114th Congress, to work with the Comptroller General to develop plans to transition program authorizations to a multi-year schedule; and (2) the Comptroller General, during such Congress, to continue to provide assistance to Congress with respect to programmatic oversight, and in particular to assist the congressional committees in designing and conforming programmatic oversight procedures for FY2016-FY2017 biennium.
[Congressional Bills 113th Congress]
[From the U.S. Government Publishing Office]
[H.R. 1654 Introduced in House (IH)]
113th CONGRESS
1st Session
H. R. 1654
To improve the accuracy and transparency of the Federal budget process.
_______________________________________________________________________
IN THE HOUSE OF REPRESENTATIVES
April 18, 2013
Mr. Renacci (for himself, Mr. Quigley, Mr. Carney, Mr. Welch, Mr. Heck
of Nevada, Mr. Bucshon, Mr. Barber, Mr. Webster of Florida, Mr.
Delaney, Mr. Owens, and Mr. Meehan) introduced the following bill;
which was referred to the Committee on the Budget, and in addition to
the Committees on Rules, Oversight and Government Reform, and Ways and
Means, for a period to be subsequently determined by the Speaker, in
each case for consideration of such provisions as fall within the
jurisdiction of the committee concerned
_______________________________________________________________________
A BILL
To improve the accuracy and transparency of the Federal budget process.
Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled,
SECTION 1. SHORT TITLE; TABLE OF CONTENTS.
(a) Short Title.--This Act may be cited as the ``Budget Process
Improvement Act of 2013''.
(b) Table of Contents.--
Sec. 1. Short title; table of contents.
TITLE I--IMPROVED ACCURACY AND TRANSPARENCY OF THE FEDERAL BUDGET
PROCESS
Sec. 101. CBO and JCT descriptive analyses for second decade budget
impact.
Sec. 102. OMB reports on unbudgeted fiscal exposures.
Sec. 103. Tax expenditure performance reviews and reports.
Sec. 104. Accrual accounting report.
Sec. 105. Annual revenue stability projection report.
TITLE II--BIENNIAL BUDGETING
Sec. 201. Revision of timetable.
Sec. 202. Amendments to the Congressional Budget and Impoundment
Control Act of 1974.
Sec. 203. Amendments to rules of House of Representatives.
Sec. 204. Amendments to title 31, United States Code.
Sec. 205. Two-year appropriations; title and style of appropriations
Acts.
Sec. 206. Multiyear authorizations.
Sec. 207. Government strategic and performance plans on a biennial
basis.
Sec. 208. Biennial appropriation bills.
Sec. 209. Assistance by Federal agencies to standing committees of the
Senate and the House of Representatives.
Sec. 210. Report on two-year fiscal period.
Sec. 211. Special transition period for the 114th Congress.
Sec. 212. Effective date.
TITLE I--IMPROVED ACCURACY AND TRANSPARENCY OF THE FEDERAL BUDGET
PROCESS
SEC. 101. CBO AND JCT DESCRIPTIVE ANALYSES FOR SECOND DECADE BUDGET
IMPACT.
(a) CBO.--Section 402 of the Congressional Budget Act of 1974 is
amended by inserting ``(a)'' after ``402.'', by striking the last
sentence, and by adding at the end the following new subsections:
``(b) Whenever the Director of the Congressional Budget Office
submits a cost estimate under subsection (a) of a bill or resolution,
the Director shall also provide a descriptive analysis for the second
decade budget impact of such bill or resolution.
``(c) The estimates, comparison, and description so submitted shall
be included in the report accompanying such bill or resolution if
timely submitted to such committee before such report is filed.''.
(b) JCT.--Section 202(f) of the Congressional Budget Act of 1974 is
amended by inserting ``(1)'' after ``Revenue Estimates.--'' and by
adding at the end the following new paragraph:
``(2) Whenever the Joint Committee on Taxation provides revenue
estimates to the Congressional Budget Office under paragraph (1), the
Joint Committee on Taxation shall also provide a descriptive analysis
for the second decade budget impact.''.
SEC. 102. OMB REPORTS ON UNBUDGETED FISCAL EXPOSURES.
Not later than July 1 of each year, the Director of the Office of
Management and Budget, in conjunction with the Secretary of the
Treasury, shall publish a report on the size, scope, risk, and cost of
the contingent liabilities of the Government, including the implicit
guarantees to Government-sponsored enterprises such as the Federal
National Mortgage Association and the Federal Home Loan Mortgage
Corporation.
SEC. 103. TAX EXPENDITURE PERFORMANCE REVIEWS AND REPORTS.
(a) Performance Review Schedule and Reports.--(1) The Secretary of
the Treasury (hereinafter in this section referred to as the
``Secretary''), in conjunction with the Director of the Office of
Management and Budget (hereinafter in this section referred to as the
``Director''), shall conduct performance reviews of tax expenditures,
as identified by the Joint Committee on Taxation, on an ongoing basis.
The Secretary shall develop the schedule for these reviews, such that
each tax expenditure is reviewed at least once in every four-year
period. A four-year schedule shall be submitted by the Secretary to the
Committee on Ways and Means of the House of Representatives and the
Committee on Finance of the Senate during January of each calendar
year.
(2) Within three months after the enactment of any new tax
expenditure, the Secretary shall revise the most recent four-year
schedule of tax expenditure performance reviews and submit them to the
Committee on Ways and Means of the House of Representatives and the
Committee on Finance of the Senate.
(3) Not later than one year after the enactment of this Act, the
Secretary shall have submitted to Congress and to the Director the
first four-year schedule and begin the first performance reviews under
paragraph (1).
(4) The Secretary shall endeavor to develop a four-year schedule
that provides for the simultaneous review of tax expenditures that have
similar policy objectives.
(b) Reports.--
(1) The Secretary shall report each of its performance
reviews of tax expenditures to the Committee on Ways and Means
of the House of Representatives and the Committee on Finance of
the Senate in quarterly reports and containing all of the
performance reviews conducted since the preceding report.
(2) The Secretary may conduct expedited performance reviews
for any tax expenditure that has an estimated annual fiscal
impact of less than $1 billion, annually adjusted for
inflation, unless the chairs and ranking minority members of
the Committee on Ways and Means of the House of Representatives
and the Committee on Finance of the Senate jointly request, in
writing, a full review.
(3) Each performance review, except for expedited
performance reviews, shall include the following explanations,
descriptions, estimates, analyses, and recommendations:
(A) An explanation of the tax expenditure and any
relevant economic, social, or other context under which
it was first enacted.
(B) A description of the intended purpose of the
tax expenditure.
(C) An analysis of the overall success of the tax
expenditure in achieving such purpose, and evidence
supporting such analysis.
(D) An analysis of the extent to which further
extending the tax expenditure, or making it permanent,
would contribute to achieving such purpose.
(E) A description of the direct and indirect
beneficiaries of the tax expenditure, also specifying--
(i) any unintended beneficiaries of the tax
expenditure;
(ii) the classes of individuals, types of
organizations, or types of industries whose
Federal tax liabilities are directly affected
by the tax expenditure;
(iii) the extent to which terminating the
tax expenditure may have negative effects on
the category of taxpayers that currently
benefit from the tax preference and on the
economy; and
(iv) the extent to which the termination of
the tax expenditure would affect the
distribution of liability for payments of
Federal taxes.
(F) An analysis of whether the tax expenditure is
the most cost-effective method for achieving the
purpose for which it was intended, and a description of
any more cost-effective methods through which such
purpose could be accomplished, and in particular the
extent to which a direct spending program might be
preferable to a tax expenditure, including--
(i) whether an outlay program might achieve
the same policy objectives as a tax
expenditure;
(ii) whether an outlay program might reduce
deadweight losses and improve economic
efficiency in the national economy; and
(iii) whether a direct spending program
might be more or less expense to administer.
(G) A description of any unintended effects of the
tax expenditure that is useful in understanding the tax
expenditure's overall value.
(H) A description of any interactions (actual or
potential) with other tax expenditures or direct
spending programs in the same or related budget
function that should be studied further.
(I) An estimate of the annual cost in forgone
revenues of the tax expenditure, as well as a
projection of the cost in foregone revenues for the
ensuing ten fiscal years.
(J) A description of any further information needed
to complete a more thorough examination and analysis of
the tax expenditure, and what is necessary to make such
information available.
(K) A specific recommendation, based on analysis
conducted in the performance review, as to whether the
tax expenditure should be continued without
modification, modified (including converted fully or
partly into a direct spending program), scheduled for
sunset, reviewed at a later date, or terminated
immediately. The Secretary may decline to provide a
specific recommendation, but in each such case shall
provide an explanation of why a recommendation has not
been given.
(4) An expedited performance review shall include at least
the explanations, descriptions, estimates, analyses, and
recommendations as listed in subparagraphs (A), (B), (C), (D),
(I), (J), and (K) of paragraph (3).
(c) Committee Hearings.--After the submission of any performance
review report under subsection (b), the Committee on Ways and Means of
the House of Representatives and the Committee on Finance of the Senate
shall hold public hearings to consider the performance review
recommendations contained in that report. The Committees on the Budget
of the House of Representatives and the Senate may also hold hearings
on such performance review recommendations.
SEC. 104. ACCRUAL ACCOUNTING REPORT.
(a) Accrual-Based Accounting System.--The Director of the Office of
Management and Budget shall develop a proposal for the implementation
of an accrual-based accounting system for certain portions of the
budget, excluding--
(1) insurance;
(2) environmental liabilities;
(3) Federal employee pensions;
(4) retiree health benefits; and
(5) other budget items where accrual-based accounting would
feasibly capture significant future cash resource requirements
that are not reflected in the cash-based budget; where
appropriate and reasonable.
(b) Report.--Within one year of the date of enactment of this Act,
the Director of the Office of Management and Budget shall submit a
report to Congress setting forth the legislation necessary for the
implementation of an accrual-based accounting system for part of the
budget, along with any recommendations regarding its proposed
legislation.
SEC. 105. ANNUAL REVENUE STABILITY PROJECTION REPORT.
Not later than July 1 of each year, the Joint Committee on
Taxation, shall publish a report that projects annual Federal revenues
by source over the next 10 fiscal years and includes a discussion of
the assumptions used to project such revenues. The Joint Committee on
Taxation shall transmit to the Committee on Ways and Means of the House
of Representatives.
TITLE II--BIENNIAL BUDGETING
SEC. 201. REVISION OF TIMETABLE.
Section 300 of the Congressional Budget Act of 1974 (2 U.S.C. 631)
is amended to read as follows:
``timetable
``Sec. 300. (a) In General.--Except as provided by subsection (b),
the timetable with respect to the congressional budget process for any
Congress (beginning with the One Hundred Fifteenth Congress) is as
follows:
``First Session
On or before: Action to be completed:
First Monday in February........... President submits budget
recommendations.
February 15........................ Congressional Budget Office submits
report to Budget Committees.
Not later than 6 weeks after budget Committees submit views and
submission. estimates to Budget Committees.
April 1............................ Budget Committees report concurrent
resolution on the biennial budget.
May 15............................. Congress completes action on
concurrent resolution on the
biennial budget.
May 15............................. Biennial appropriation bills may be
considered in the House.
June 10............................ House Appropriations Committee
reports last biennial
appropriation bill.
June 30............................ House completes action on biennial
appropriation bills.
October 1.......................... Biennium begins.
Second Session
On or before: Action to be completed:
February 15........................ President submits budget review.
Not later than 6 weeks after Congressional Budget Office submits
President submits budget review. report to Budget Committees.
The last day of the session........ Congress completes action on bills
and resolutions authorizing new
budget authority for the
succeeding biennium.
``(b) Special Rule.--In the case of any first session of Congress
that begins in any year during which the term of a President (except a
President who succeeds himself) begins, the following dates shall
supersede those set forth in subsection (a):
``First Session
On or before: Action to be completed:
First Monday in April.............. President submits budget
recommendations.
April 20........................... Committees submit views and
estimates to Budget Committees.
May 15............................. Budget Committees report concurrent
resolution on the biennial budget.
June 1............................. Congress completes action on
concurrent resolution on the
biennial budget.
June 1............................. Biennial appropriation bills may be
considered in the House.
July 1............................. House Appropriations Committee
reports last biennial
appropriation bill.
July 20............................ House completes action on biennial
appropriation bills.
October 1.......................... Biennium begins.''.
SEC. 202. AMENDMENTS TO THE CONGRESSIONAL BUDGET AND IMPOUNDMENT
CONTROL ACT OF 1974.
(a) Declaration of Purpose.--Section 2(2) of the Congressional
Budget and Impoundment Control Act of 1974 (2 U.S.C. 621(2)) is amended
by striking ``each year'' and inserting ``biennially''.
(b) Definitions.--
(1) Budget resolution.--Section 3(4) of such Act (2 U.S.C.
622(4)) is amended by striking ``fiscal year'' each place it
appears and inserting ``biennium''.
(2) Biennium.--Section 3 of such Act (2 U.S.C. 622) is
amended by adding at the end the following new paragraph:
``(12) The term `biennium' means the period of 2
consecutive fiscal years beginning on October 1 of any odd-
numbered year.''.
(c) Biennial Concurrent Resolution on the Budget.--
(1) Contents of resolution.--Section 301(a) of such Act (2
U.S.C. 632(a)) is amended--
(A) in the matter preceding paragraph (1) by--
(i) striking ``April 15 of each year'' and
inserting ``May 15 of each odd-numbered year'';
(ii) striking ``the fiscal year beginning
on October 1 of such year'' the first place it
appears and inserting ``the biennium beginning
on October 1 of such year''; and
(iii) striking ``the fiscal year beginning
on October 1 of such year'' the second place it
appears and inserting ``each fiscal year in
such period'';
(B) in paragraph (6), by striking ``for the fiscal
year'' and inserting ``for each fiscal year in the
biennium''; and
(C) in paragraph (7), by striking ``for the fiscal
year'' and inserting ``for each fiscal year in the
biennium''.
(2) Additional matters.--Section 301(b) of such Act (2
U.S.C. 632(b)) is amended--
(A) in paragraph (3), by striking ``for such fiscal
year'' and inserting ``for either fiscal year in such
biennium''; and
(B) in paragraph (7), by striking ``for the first
fiscal year'' and inserting ``for each fiscal year in
the biennium''.
(3) Views of other committees.--Section 301(d) of such Act
(2 U.S.C. 632(d)) is amended by inserting ``(or, if applicable,
as provided by section 300(b))'' after ``United States Code''.
(4) Hearings.--Section 301(e)(1) of such Act (2 U.S.C.
632(e)) is amended by--
(A) striking ``fiscal year'' and inserting
``biennium''; and
(B) inserting after the second sentence the
following: ``On or before April 1 of each odd-numbered
year (or, if applicable, as provided by section
300(b)), the Committee on the Budget of each House
shall report to its House the concurrent resolution on
the budget referred to in subsection (a) for the
biennium beginning on October 1 of that year.''.
(5) Goals for reducing unemployment.--Section 301(f) of
such Act (2 U.S.C. 632(f)) is amended by striking ``fiscal
year'' each place it appears and inserting ``biennium''.
(6) Economic assumptions.--Section 301(g)(1) of such Act (2
U.S.C. 632(g)(1)) is amended by striking ``for a fiscal year''
and inserting ``for a biennium''.
(7) Section heading.--The section heading of section 301 of
such Act is amended by striking ``annual'' and inserting
``biennial''.
(8) Table of contents.--The item relating to section 301 in
the table of contents set forth in section 1(b) of such Act is
amended by striking ``Annual'' and inserting ``Biennial''.
(d) Committee Allocations.--Section 302 of such Act (2 U.S.C. 633)
is amended--
(1) in subsection (a)(1) by--
(A) striking ``for the first fiscal year of the
resolution,'' and inserting ``for each fiscal year in
the biennium,'';
(B) striking ``for that period of fiscal years''
and inserting ``for all fiscal years covered by the
resolution''; and
(C) striking ``for the fiscal year of that
resolution'' and inserting ``for each fiscal year in
the biennium'';
(2) in subsection (a)(5), by striking ``April 15'' and
inserting ``May 15'';
(3) in subsection (f)(1), by striking ``for a fiscal year''
and inserting ``for a biennium'';
(4) in subsection (f)(1), by striking ``first fiscal year''
and inserting ``either fiscal year of the biennium'';
(5) in subsection (f)(2)(A), by--
(A) striking ``first fiscal year'' and inserting
``each fiscal year of the biennium''; and
(B) striking ``the total of fiscal years'' and
inserting ``the total of all fiscal years covered by
the resolution''; and
(6) in subsection (g)(1)(A), by striking ``April'' and
inserting ``May''.
(e) Section 303 Point of Order.--
(1) In general.--Section 303(a) of such Act (2 U.S.C.
634(a)) is amended by striking ``for a fiscal year'' and
inserting ``for a biennium'' and by striking ``the first fiscal
year'' and inserting ``each fiscal year of the biennium''.
(2) Exceptions in the house.--Section 303(b) of such Act (2
U.S.C. 634(b)) is amended--
(A) in paragraph (1)(A), by striking ``the budget
year'' and inserting ``the biennium'';
(B) in paragraph (1)(B), by striking ``the fiscal
year'' and inserting ``the biennium''; and
(C) in paragraph (2), by inserting ``(or June 1
whenever section 300(b) is applicable)''.
(3) Application to the senate.--Section 303(c)(1) of such
Act (2 U.S.C. 634(c)) is amended by--
(A) striking ``fiscal year'' and inserting
``biennium''; and
(B) striking ``that year'' and inserting ``each
fiscal year of that biennium''.
(f) Permissible Revisions of Concurrent Resolutions on the
Budget.--Section 304 of such Act (2 U.S.C. 635) is amended--
(1) by striking ``fiscal year'' the first two places it
appears and inserting ``biennium'';
(2) by striking ``for such fiscal year''; and
(3) by inserting before the period ``for such biennium''.
(g) Procedures for Consideration of Budget Resolutions.--Section
305(a)(3) of such Act (2 U.S.C. 636(b)(3)) is amended by striking
``fiscal year'' and inserting ``biennium''.
(h) Completion of House Committee Action on Appropriation Bills.--
Section 307 of such Act (2 U.S.C. 638) is amended--
(1) by striking ``each year'' and inserting ``each odd-
numbered year (or, if applicable, as provided by section
300(b), July 1)'';
(2) by striking ``annual'' and inserting ``biennial'';
(3) by striking ``fiscal year'' and inserting ``biennium'';
and
(4) by striking ``that year'' and inserting ``each odd-
numbered year''.
(i) Quarterly Budget Reports.--Section 308 of such Act (2 U.S.C.
639) is amended by adding at the end the following new subsection:
``(d) Quarterly Budget Reports.--The Director of the Congressional
Budget Office shall, as soon as practicable after the completion of
each quarter of the fiscal year, prepare an analysis comparing
revenues, spending, and the deficit or surplus for the current fiscal
year to assumptions included in the congressional budget resolution. In
preparing this report, the Director of the Congressional Budget Office
shall combine actual budget figures to date with projected revenue and
spending for the balance of the fiscal year. The Director of the
Congressional Budget Office shall include any other information in this
report that it deems useful for a full understanding of the current
fiscal position of the Federal Government. The reports mandated by this
subsection shall be transmitted by the Director to the Senate and House
Committees on the Budget, and the Congressional Budget Office shall
make such reports available to any interested party upon request.''.
(j) Completion of House Action on Regular Appropriation Bills.--
Section 309 of such Act (2 U.S.C. 640) is amended--
(1) by striking ``It'' and inserting ``Except whenever
section 300(b) is applicable, it'';
(2) by inserting ``of any odd-numbered calendar year''
after ``July'';
(3) by striking ``annual'' and inserting ``biennial''; and
(4) by striking ``fiscal year'' and inserting ``biennium''.
(k) Reconciliation Process.--Section 310 of such Act (2 U.S.C. 641)
is amended--
(1) in subsection (a), in the matter preceding paragraph
(1), by striking ``any fiscal year'' and inserting ``any
biennium'';
(2) in subsection (a)(1), by striking ``such fiscal year''
each place it appears and inserting ``any fiscal year covered
by such resolution''; and
(3) by striking subsection (f) and redesignating subsection
(g) as subsection (f).
(l) Section 311 Point of Order.--
(1) In the house.--Section 311(a)(1) of such Act (2 U.S.C.
642(a)) is amended--
(A) by striking ``for a fiscal year'' and inserting
``for a biennium'';
(B) by striking ``the first fiscal year'' each
place it appears and inserting ``either fiscal year of
the biennium''; and
(C) by striking ``that first fiscal year'' and
inserting ``each fiscal year in the biennium''.
(2) In the senate.--Section 311(a)(2) of such Act is
amended--
(A) in subparagraph (A), by striking ``for the
first fiscal year'' and inserting ``for either fiscal
year of the biennium''; and
(B) in subparagraph (B)--
(i) by striking ``that first fiscal year''
the first place it appears and inserting ``each
fiscal year in the biennium''; and
(ii) by striking ``that first fiscal year
and the ensuing fiscal years'' and inserting
``all fiscal years''.
(3) Social security levels.--Section 311(a)(3) of such Act
is amended by--
(A) striking ``for the first fiscal year'' and
inserting ``each fiscal year in the biennium''; and
(B) striking ``that fiscal year and the ensuing
fiscal years'' and inserting ``all fiscal years''.
(m) Maximum Deficit Amount Point of Order.--Section 312(c) of the
Congressional Budget Act of 1974 (2 U.S.C. 643) is amended--
(1) by striking ``for a fiscal year'' and inserting ``for a
biennium'';
(2) in paragraph (1), by striking ``first fiscal year'' and
inserting ``either fiscal year in the biennium'';
(3) in paragraph (2), by striking ``that fiscal year'' and
inserting ``either fiscal year in the biennium''; and
(4) in the matter following paragraph (2), by striking
``that fiscal year'' and inserting ``the applicable fiscal
year''.
SEC. 203. AMENDMENTS TO RULES OF HOUSE OF REPRESENTATIVES.
(a) Clause 4(a)(1)(A) of rule X of the Rules of the House of
Representatives is amended by inserting ``odd-numbered'' after
``each''.
(b) Clause 4(a)(4) of rule X of the Rules of the House of
Representatives is amended by striking ``fiscal year'' and inserting
``biennium''.
(c) Clause 4(b)(2) of rule X of the Rules of the House of
Representatives is amended by striking ``each fiscal year'' and
inserting ``the biennium''.
(d) Clause 4(b) of rule X of the Rules of the House of
Representatives is amended by striking ``and'' at the end of
subparagraph (5), by striking the period and inserting ``; and'' at the
end of subparagraph (6), and by adding at the end the following new
subparagraph:
``(7) use the second session of each Congress to study issues with
long-term budgetary and economic implications, which would include--
``(A) hold hearings to receive testimony from committees of
jurisdiction to identify problem areas and to report on the
results of oversight; and
``(B) by January 1 of each odd-numbered year, issuing a
report to the Speaker which identifies the key issues facing
the Congress in the next biennium.''.
(e) Clause 11(i) of rule X of the Rules of the House of
Representatives is amended by striking ``during the same or preceding
fiscal year''.
(f) Clause 4(e) of rule X of the Rules of the House of
Representatives is amended by striking ``annually'' each place it
appears and inserting ``biennially'' and by striking ``annual'' and
inserting ``biennial''.
(g) Clause 4(f) of rule X of the Rules of the House of
Representatives is amended--
(1) by inserting ``during each odd-numbered year'' after
``the submission of budget by the President'';
(2) by striking ``fiscal year'' the first place it appears
and inserting ``biennium''; and
(3) by striking ``that fiscal year'' and inserting ``each
fiscal year in such ensuing biennium''.
(h) Clause 3(d)(2)(A) of rule XIII of the Rules of the House of
Representatives is amended by striking ``five'' both places it appears
and inserting ``six''.
(i) Clause 5(a)(1) of rule XIII of the Rules of the House of
Representatives is amended by striking ``fiscal year after September 15
in the preceding fiscal year'' and inserting ``biennium after September
15 of the year in which such biennium begins''.
SEC. 204. AMENDMENTS TO TITLE 31, UNITED STATES CODE.
(a) Definition.--Section 1101 of title 31, United States Code, is
amended by adding at the end thereof the following new paragraph:
``(3) `biennium' has the meaning given to such term in
paragraph (12) of section 3 of the Congressional Budget and
Impoundment Control Act of 1974 (2 U.S.C. 622(11)).''.
(b) Budget Contents and Submission to the Congress.--
(1) Schedule.--The matter preceding paragraph (1) in
section 1105(a) of title 31, United States Code, is amended to
read as follows:
``(a) On or before the first Monday in February of each odd-
numbered year (or, if applicable, as provided by section 300(b) of the
Congressional Budget Act of 1974), beginning with the One Hundred
Fifteenth Congress, the President shall transmit to the Congress, the
budget for the biennium beginning on October 1 of such calendar year.
The budget transmitted under this subsection shall include a budget
message and summary and supporting information. The President shall
include in each budget the following:''.
(2) Expenditures.--Section 1105(a)(5) of title 31, United
States Code, is amended by striking ``the fiscal year for which
the budget is submitted and the 4 fiscal years after that
year'' and inserting ``each fiscal year in the biennium for
which the budget is submitted and in the succeeding 4 years''.
(3) Receipts.--Section 1105(a)(6) of title 31, United
States Code, is amended by striking ``the fiscal year for which
the budget is submitted and the 4 fiscal years after that
year'' and inserting ``each fiscal year in the biennium for
which the budget is submitted and in the succeeding 4 years''.
(4) Balance statements.--Section 1105(a)(9)(C) of title 31,
United States Code, is amended by striking ``the fiscal year''
and inserting ``each fiscal year in the biennium''.
(5) Government functions and activities.--Section
1105(a)(12) of title 31, United States Code, is amended in
subparagraph (A), by striking ``the fiscal year'' and inserting
``each fiscal year in the biennium''.
(6) Allowances.--Section 1105(a)(13) of title 31, United
States Code, is amended by striking ``the fiscal year'' and
inserting ``each fiscal year in the biennium''.
(7) Allowances for unanticipated and uncontrollable
expenditures.--Section 1105(a)(14) of title 31, United States
Code, is amended by striking ``that year'' and inserting ``each
fiscal year in the biennium for which the budget is
submitted''.
(8) Tax expenditures.--Section 1105(a)(16) of title 31,
United States Code, is amended by striking ``the fiscal year''
and inserting ``each fiscal year in the biennium''.
(9) Estimates for future years.--Section 1105(a)(17) of
title 31, United States Code, is amended--
(A) by striking ``the fiscal year following the
fiscal year'' and inserting ``each fiscal year in the
biennium following the biennium'';
(B) by striking ``that following fiscal year'' and
inserting ``each such fiscal year''; and
(C) by striking ``fiscal year before the fiscal
year'' and inserting ``biennium before the biennium''.
(10) Prior year outlays.--Section 1105(a)(18) of title 31,
United States Code, is amended--
(A) by striking ``the prior fiscal year'' and
inserting ``each of the 2 most recently completed
fiscal years,'';
(B) by striking ``for that year'' and inserting
``with respect to those fiscal years''; and
(C) by striking ``in that year'' and inserting ``in
those fiscal years''.
(11) Prior year receipts.--Section 1105(a)(19) of title 31,
United States Code, is amended--
(A) by striking ``the prior fiscal year'' and
inserting ``each of the 2 most recently completed
fiscal years'';
(B) by striking ``for that year'' and inserting
``with respect to those fiscal years''; and
(C) by striking ``in that year'' each place it
appears and inserting ``in those fiscal years''.
(c) Estimated Expenditures of Legislative and Judicial Branches.--
Section 1105(b) of title 31, United States Code, is amended by striking
``each year'' and inserting ``each even numbered year''.
(d) Recommendations To Meet Estimated Deficiencies.--Section
1105(c) of title 31, United States Code, is amended--
(1) by striking ``the fiscal year for'' the first place it
appears and inserting ``each fiscal year in the biennium for'';
(2) by striking ``the fiscal year for'' the second place it
appears and inserting ``each fiscal year of the biennium, as
the case may be,''; and
(3) by striking ``that year'' and inserting ``for each year
of the biennium''.
(e) Capital Investment Analysis.--Section 1105(e)(1) of title 31,
United States Code, is amended by striking ``ensuing fiscal year'' and
inserting ``biennium to which such budget relates''.
(f) Supplemental Budget Estimates and Changes.--
(1) In general.--Section 1106(a) of title 31, United States
Code, is amended--
(A) in the matter preceding paragraph (1), by--
(i) inserting ``and before February 15 of
each even numbered year'' after ``Before July
16 of each year''; and
(ii) striking ``fiscal year'' and inserting
``biennium'';
(B) in paragraph (1), by striking ``that fiscal
year'' and inserting ``each fiscal year in such
biennium'';
(C) in paragraph (2), by striking ``4 fiscal years
following the fiscal year'' and inserting ``4 fiscal
years following the biennium''; and
(D) in paragraph (3), by striking ``fiscal year''
and inserting ``biennium''.
(2) Changes.--Section 1106(b) of title 31, United States
Code, is amended by--
(A) striking ``the fiscal year'' and inserting
``each fiscal year in the biennium''; and
(B) inserting ``and before February 15 of each even
numbered year'' after ``Before July 16 of each year''.
(g) Current Programs and Activities Estimates.--
(1) The president.--Section 1109(a) of title 31, United
States Code, is amended--
(A) by striking ``On or before the first Monday
after January 3 of each year (on or before February 5
in 1986)'' and inserting ``At the same time the budget
required by section 1105 is submitted for a biennium'';
and
(B) by striking ``the following fiscal year'' and
inserting ``each fiscal year of such period''.
(2) Joint economic committee.--Section 1109(b) of title 31,
United States Code, is amended by striking ``March 1 of each
year'' and inserting ``within 6 weeks of the President's budget
submission for each odd-numbered year (or, if applicable, as
provided by section 300(b) of the Congressional Budget Act of
1974)''.
(h) Year-Ahead Requests for Authorizing Legislation.--Section 1110
of title 31, United States Code, is amended by--
(1) striking ``May 16'' and inserting ``March 31''; and
(2) striking ``year before the year in which the fiscal
year begins'' and inserting ``calendar year preceding the
calendar year in which the biennium begins''.
SEC. 205. TWO-YEAR APPROPRIATIONS; TITLE AND STYLE OF APPROPRIATIONS
ACTS.
Section 105 of title 1, United States Code, is amended to read as
follows:
``Sec. 105. Title and style of appropriations Acts
``(a) The style and title of all Acts making appropriations for the
support of the Government shall be as follows: `An Act making
appropriations (here insert the object) for each fiscal year in the
biennium of fiscal years (here insert the fiscal years of the
biennium).'.
``(b) All Acts making regular appropriations for the support of the
Government shall be enacted for a biennium and shall specify the amount
of appropriations provided for each fiscal year in such period.
``(c) For purposes of this section, the term `biennium' has the
same meaning as in section 3(12) of the Congressional Budget and
Impoundment Control Act of 1974 (2 U.S.C. 622(12)).''.
SEC. 206. MULTIYEAR AUTHORIZATIONS.
(a) In General.--Title III of the Congressional Budget Act of 1974
is amended by adding at the end the following new section:
``multiyear authorizations of appropriations
``Sec. 316. (a) Point of Order.--(1)(A) It shall not be in order
in the House of Representatives or the Senate to consider any measure
that contains a specific authorization of appropriations for any
purpose unless the measure includes such a specific authorization of
appropriations for that purpose for not less than each fiscal year in
one or more bienniums.
``(B) For purposes of this paragraph, a specific authorization of
appropriations is an authorization for the enactment of an amount of
appropriations or amounts not to exceed an amount of appropriations
(whether stated as a sum certain, as a limit, or as such sums as may be
necessary) for any purpose for a fiscal year.
``(2) Paragraph (1) does not apply with respect to an authorization
of appropriations for a single fiscal year for any program, project, or
activity if the measure containing that authorization includes a
provision expressly stating the following: `Congress finds that no
authorization of appropriation will be required for [Insert name of
applicable program, project, or activity] for any subsequent fiscal
year.'.
``(3) For purposes of this subsection, the term `measure' means a
bill, joint resolution, amendment, motion, or conference report.''.
(b) Amendment to Table of Contents.--The table of contents set
forth in section 1(b) of the Congressional Budget and Impoundment
Control Act of 1974 is amended by adding after the item relating to
section 315 the following new item:
``Sec. 316. Multiyear authorizations of appropriations.''.
SEC. 207. GOVERNMENT STRATEGIC AND PERFORMANCE PLANS ON A BIENNIAL
BASIS.
(a) Strategic Plans.--Section 306 of title 5, United States Code,
is amended--
(1) in subsection (a), by striking ``September 30, 1997''
and inserting ``September 30, 2016'';
(2) in subsection (b)--
(A) by striking ``at least every three years'' and
inserting ``at least every 4 years''; and
(B) by striking ``five years forward'' and
inserting ``six years forward''; and
(3) in subsection (c), by inserting a comma after
``section'' the second place it appears and adding ``including
a strategic plan submitted by September 30, 2016, meeting the
requirements of subsection (a)''.
(b) Budget Contents and Submission to Congress.--Paragraph (28) of
section 1105(a) of title 31, United States Code, is amended by striking
``beginning with fiscal year 1999, a'' and inserting ``beginning with
fiscal year 2018, a biennial''.
(c) Performance Plans.--Section 1115 of title 31, United States
Code, is amended--
(1) in subsection (a)--
(A) in the matter before paragraph (1) by striking
``an annual'' and inserting ``a biennial'';
(B) in paragraph (1) by inserting after ``program
activity'' the following: ``for both years 1 and 2 of
the biennial plan'';
(C) in paragraph (5) by striking ``and'' after the
semicolon;
(D) in paragraph (6) by striking the period and
inserting a semicolon; and inserting ``and'' after the
inserted semicolon; and
(E) by adding after paragraph (6) the following:
``(7) cover each fiscal year of the biennium beginning with
the first fiscal year of the next biennial budget cycle.'';
(2) in subsection (d) by striking ``annual'' and inserting
``biennial''; and
(3) in paragraph (6) of subsection (f) by striking
``annual'' and inserting ``biennial''.
(d) Managerial Accountability and Flexibility.--Section 9703 of
title 31, United States Code, relating to managerial accountability, is
amended--
(1) in subsection (a)--
(A) in the first sentence by striking ``Beginning
with fiscal year 1999, the'' and inserting ``Beginning
with fiscal year 2018, the biennial'' and by striking
``annual''; and
(B) by striking ``section 1105(a)(29)'' and
inserting ``section 1105(a)(28)''; and
(2) in subsection (e)--
(A) in the first sentence by striking ``one or''
before ``years'';
(B) in the second sentence by striking ``a
subsequent year'' and inserting ``for a subsequent 2-
year period''; and
(C) in the third sentence by striking ``three'' and
inserting ``four''.
(e) Pilot Projects for Performance Budgeting.--Section 1119 of
title 31, United States Code, is amended--
(1) in paragraph (1) of subsection (d), by striking
``annual'' and inserting ``biennial''; and
(2) in subsection (e), by striking ``annual'' and inserting
``biennial''.
(f) Strategic Plans.--Section 2802 of title 39, United States Code,
is amended--
(1) in subsection (a), by striking ``September 30, 1997''
and inserting ``September 30, 2016'';
(2) in subsection (b), by striking ``at least every three
years'' and inserting ``at least every 4 years'';
(3) by striking ``five years forward'' and inserting ``six
years forward''; and
(4) in subsection (c), by inserting a comma after
``section'' the second place it appears and inserting
``including a strategic plan submitted by September 30, 2016,
meeting the requirements of subsection (a)''.
(g) Performance Plans.--Section 2803(a) of title 39, United States
Code, is amended--
(1) in the matter before paragraph (1), by striking ``an
annual'' and inserting ``a biennial'';
(2) in paragraph (1), by inserting after ``program
activity'' the following: ``for both years 1 and 2 of the
biennial plan'';
(3) in paragraph (5), by striking ``and'' after the
semicolon;
(4) in paragraph (6), by striking the period and inserting
``; and''; and
(5) by adding after paragraph (6) the following:
``(7) cover each fiscal year of the biennium beginning with
the first fiscal year of the next biennial budget cycle.''.
(h) Committee Views of Plans and Reports.--Section 301(d) of the
Congressional Budget Act (2 U.S.C. 632(d)) is amended by adding at the
end ``Each committee of the Senate or the House of Representatives
shall review the strategic plans, performance plans, and performance
reports, required under section 306 of title 5, United States Code, and
sections 1115 and 1116 of title 31, United States Code, of all agencies
under the jurisdiction of the committee. Each committee may provide its
views on such plans or reports to the Committee on the Budget of the
applicable House.''.
(i) Effective Date.--
(1) In general.--The amendments made by this section shall
take effect on September 30, 2016.
(2) Agency actions.--Effective on and after the date of
enactment of this Act, each agency shall take such actions as
necessary to prepare and submit any plan or report in
accordance with the amendments made by it.
SEC. 208. BIENNIAL APPROPRIATION BILLS.
(a) In the House of Representatives.--(1) Clause 2(a) of rule XXI
of the Rules of the House of Representatives is amended by adding at
the end the following new subparagraph:
``(3)(A) Except as provided by subdivision (B), an appropriation
may not be reported in a general appropriation bill (other than a
supplemental appropriation bill), and may not be in order as an
amendment thereto, unless it provides new budget authority or
establishes a level of obligations under contract authority for each
fiscal year of a biennium.
``(B) Subdivision (A) does not apply with respect to an
appropriation for a single fiscal year for any program, project, or
activity if the bill or amendment thereto containing that appropriation
includes a provision expressly stating the following: `Congress finds
that no additional funding beyond one fiscal year will be required and
the [Insert name of applicable program, project, or activity] will be
completed or terminated after the amount provided has been expended.'.
``(C) For purposes of paragraph (b), the statement set forth in
subdivision (B) with respect to an appropriation for a single fiscal
year for any program, project, or activity may be included in a general
appropriation bill or amendment thereto.''.
(2) Clause 5(b)(1) of rule XXII of the Rules of the House of
Representatives is amended by striking ``or (c)'' and inserting ``or
(3) or 2(c)''.
(b) In the Senate.--(1) Title III of the Congressional Budget Act
of 1974 (2 U.S.C. 631 et seq.) (as amended by section 206) is further
amended by adding at the end the following:
``consideration of biennial appropriation bills
``Sec. 317. It shall not be in order in the Senate in any odd-
numbered year to consider any regular appropriation bill providing new
budget authority or a limitation on obligations under the jurisdiction
of the Committee on Appropriations for only the first fiscal year of a
biennium, unless the program, project, or activity for which the new
budget authority or obligation limitation is provided will require no
additional authority beyond one year and will be completed or
terminated after the amount provided has been expended.''.
(2) The table of contents set forth in section 1(b) of the
Congressional Budget and Impoundment Control Act of 1974 is amended by
adding after the item relating to section 316 the following new item:
``Sec. 317. Consideration of biennial appropriation bills.''.
SEC. 209. ASSISTANCE BY FEDERAL AGENCIES TO STANDING COMMITTEES OF THE
SENATE AND THE HOUSE OF REPRESENTATIVES.
(a) Information Regarding Agency Appropriations Requests.--To
assist each standing committee of the House of Representatives and the
Senate in carrying out its responsibilities, the head of each Federal
agency which administers the laws or parts of laws under the
jurisdiction of such committee shall provide to such committee such
studies, information, analyses, reports, and assistance as may be
requested by the chairman and ranking minority member of the committee.
(b) Information Regarding Agency Program Administration.--To assist
each standing committee of the House of Representatives and the Senate
in carrying out its responsibilities, the head of any agency shall
furnish to such committee documentation, containing information
received, compiled, or maintained by the agency as part of the
operation or administration of a program, or specifically compiled
pursuant to a request in support of a review of a program, as may be
requested by the chairman and ranking minority member of such
committee.
(c) Summaries by Comptroller General.--Within thirty days after the
receipt of a request from a chairman and ranking minority member of a
standing committee having jurisdiction over a program being reviewed
and studied by such committee under this section, the Comptroller
General of the United States shall furnish to such committee summaries
of any audits or reviews of such program which the Comptroller General
has completed during the preceding six years.
(d) Congressional Assistance.--Consistent with their duties and
functions under law, the Comptroller General of the United States, the
Director of the Congressional Budget Office, and the Director of the
Congressional Research Service shall continue to furnish (consistent
with established protocols) to each standing committee of the House of
Representatives or the Senate such information, studies, analyses, and
reports as the chairman and ranking minority member may request to
assist the committee in conducting reviews and studies of programs
under this section.
SEC. 210. REPORT ON TWO-YEAR FISCAL PERIOD.
Not later than 180 days after the date of enactment of this Act,
the Director of the Office of Management and Budget shall--
(1) determine the impact and feasibility of changing the
definition of a fiscal year and the budget process based on
that definition to a 2-year fiscal period with a biennial
budget process based on the 2-year period; and
(2) report the findings of the study to the Committees on
the Budget of the House of Representatives and the Senate and
the Committee on Rules of the House of Representatives.
SEC. 211. SPECIAL TRANSITION PERIOD FOR THE 114TH CONGRESS.
(a) President's Budget Submission for Fiscal Year 2016.--The budget
submission of the President pursuant to section 1105(a) of title 31,
United States Code, for fiscal year 2016 shall include the following:
(1) An identification of the budget accounts for which an
appropriation should be made for each fiscal year of the fiscal
year 2016-2017 biennium.
(2) Budget authority that should be provided for each such
fiscal year for the budget accounts identified under paragraph
(1).
(b) Review and Recommendations of the Committees on
Appropriations.--The Committee on Appropriations of the House of
Representatives and the Senate shall review the items included pursuant
to subsection (a) in the budget submission of the President for fiscal
year 2016 and include its recommendations thereon in its views and
estimates made under section 301(d) of the Congressional Budget Act of
1974 within 6 weeks of that budget submission.
(c) Actions by the Committees on the Budget.--(1) The Committee on
the Budget of the House of Representatives and the Senate shall review
the items included pursuant to subsection (a) in the budget submission
of the President for fiscal year 2016 and the recommendations submitted
by the Committee on Appropriations of its House pursuant to subsection
(b) included in its views and estimates made under section 301(d) of
the Congressional Budget Act of 1974.
(2) The report of the Committee on the Budget of each House
accompanying the concurrent resolution on the budget for fiscal year
2016 and the joint explanatory statement of managers accompanying such
resolution shall also include allocations to the Committee on
Appropriations of its House of total new budget authority and total
outlays (which shall be deemed to be made pursuant to section 302(a) of
the Congressional Budget Act of 1974 for purposes of budget enforcement
under section 302(f)) for fiscal year 2017 from which the Committee on
Appropriations may report regular appropriation bills for fiscal year
2014 that include funding for certain accounts for each of fiscal years
2016 and 2017.
(3) The report of the Committee on the Budget of each House
accompanying the concurrent resolution on the budget for fiscal year
2016 and the joint explanatory statement of managers accompanying such
resolution shall also include the assumptions upon which such
allocations referred to in paragraph (2) are based.
(d) GAO Programmatic Oversight Assistance.--(1) During the first
session of the 114th Congress the committees of the House of
Representatives and the Senate are directed to work with the
Comptroller General of the United States to develop plans to transition
program authorizations to a multi-year schedule.
(2) During the 114th Congress, the Comptroller General of the
United States will continue to provide assistance to the Congress with
respect to programmatic oversight and in particular will assist the
committees of Congress in designing and conforming programmatic
oversight procedures for the fiscal year 2016-2017 biennium.
(e) CBO Authorization Report.--On or before January 15, 2016, the
Director of the Congressional Budget Office, after consultation with
the appropriate committees of the House of Representatives and Senate,
shall submit to the Congress a report listing (A) all programs and
activities funded during fiscal year 2016 for which authorizations for
appropriations have not been enacted for that fiscal year and (B) all
programs and activities funded during fiscal year 2016 for which
authorizations for appropriations will expire during that fiscal year,
fiscal year 2017, or fiscal year 2018.
(f) President's Budget Submission for Fiscal Year 2017.--The budget
submission of the President pursuant to section 1105(a) of title 31,
United States Code, for fiscal year 2017 shall include an evaluation
of, and recommendations regarding, the transitional biennial budget
process for the fiscal year 2016-2017 biennium that was carried out
pursuant to this section.
(g) CBO Transitional Report.--On or before March 31, 2016, the
Director of the Congressional Budget Office shall submit to Congress an
evaluation of, and recommendations regarding, the transitional biennial
budget process for the fiscal year 2016-2017 biennium that was carried
out pursuant to this section.
SEC. 212. EFFECTIVE DATE.
Except as provided by sections 207, 209, 210, and 211, this Act and
the amendments made by it shall take effect on January 1, 2017, and
shall apply to budget resolutions and appropriations for the biennium
beginning with fiscal year 2018.
<all>
Introduced in House
Introduced in House
Referred to the Committee on the Budget, and in addition to the Committees on Rules, Oversight and Government Reform, and Ways and Means, for a period to be subsequently determined by the Speaker, in each case for consideration of such provisions as fall within the jurisdiction of the committee concerned.
Referred to the Committee on the Budget, and in addition to the Committees on Rules, Oversight and Government Reform, and Ways and Means, for a period to be subsequently determined by the Speaker, in each case for consideration of such provisions as fall within the jurisdiction of the committee concerned.
Referred to the Committee on the Budget, and in addition to the Committees on Rules, Oversight and Government Reform, and Ways and Means, for a period to be subsequently determined by the Speaker, in each case for consideration of such provisions as fall within the jurisdiction of the committee concerned.
Referred to the Committee on the Budget, and in addition to the Committees on Rules, Oversight and Government Reform, and Ways and Means, for a period to be subsequently determined by the Speaker, in each case for consideration of such provisions as fall within the jurisdiction of the committee concerned.
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