[Congressional Bills 115th Congress]
[From the U.S. Government Publishing Office]
[H.R. 5214 Introduced in House (IH)]
<DOC>
115th CONGRESS
2d Session
H. R. 5214
To modify the congressional budget and appropriations process to
provide fiscal stability for the United States, and for other purposes.
_______________________________________________________________________
IN THE HOUSE OF REPRESENTATIVES
March 8, 2018
Mr. Byrne (for himself, Mr. Mitchell, Mr. Barton, and Mr. Gaetz)
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 House Administration, 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 modify the congressional budget and appropriations process to
provide fiscal stability for the United States, and for other purposes.
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 ``Protecting Our
Children's Future Act of 2018''.
(b) Table of Contents.--The table of contents of this Act is as
follows:
Sec. 1. Short title; table of contents.
TITLE I--BIENNIAL BUDGETING
Subtitle A--Congressional Budget Process
Sec. 101. Updating purpose of Congressional Budget Act.
Sec. 102. Definitions.
Sec. 103. Revision of timetable.
Sec. 104. Biennial concurrent resolutions on the budget.
Sec. 105. Committee allocations.
Sec. 106. Multiyear authorizations of appropriations.
Sec. 107. Additional amendments to the Congressional Budget Act of 1974
to effectuate biennial budgeting.
Subtitle B--Conforming Amendments to the Rules of the House of
Representatives and the Congressional Budget Act of 1974
Sec. 111. Rules Committee recommendations.
Sec. 112. Conforming amendments to the Congressional Budget Act of
1974.
Subtitle C--Conforming Amendments to Titles 1, 5, 31, and 39, United
States Code
Sec. 121. Two-year appropriations; title and style of appropriation
Acts.
Sec. 122. Amendments to title 31, United States Code.
Sec. 123. Government strategic and performance plans on a biennial
basis.
Subtitle D--Change of Fiscal Year
Sec. 131. Change of fiscal year.
TITLE II--DIRECT SPENDING PROGRAMS SUBJECT TO ANNUAL APPROPRIATIONS
Sec. 201. Annual appropriations required for direct spending programs.
TITLE III--ZERO-BASED BUDGETING
Sec. 301. Zero-based budgeting.
TITLE IV--PROCEDURE FOR CONSIDERATION OF APPROPRIATIONS MEASURES
CONSISTENT WITH A BUDGET RESOLUTION
Sec. 401. Adoption of reconciliation procedures for appropriations
bills.
TITLE V--NO BUDGET NO PAY
Sec. 501. No budget no pay.
TITLE VI--REPEAL OF SEQUESTRATION
Sec. 601. Repeal of sequestration.
Sec. 602. Exclusion from PAYGO scorecards.
TITLE VII--MISCELLANEOUS PROVISIONS
Sec. 701. Effective date.
TITLE I--BIENNIAL BUDGETING
Subtitle A--Congressional Budget Process
SEC. 101. UPDATING PURPOSE OF CONGRESSIONAL BUDGET ACT.
Paragraphs (1) and (2) of section 2 of the Congressional Budget and
Impoundment Control Act of 1974 are amended to read as follows:
``(1) to assure effective control over the budgetary
process and Federal spending;
``(2) to facilitate the determination biennially of the
appropriate level of Federal revenues and expenditures by the
Congress and the President;''.
SEC. 102. DEFINITIONS.
Section 3 of the Congressional Budget and Impoundment Control Act
of 1974 is amended by adding at the end the following new paragraphs:
``(12) The term `direct spending' has the meaning given to
such term in section 250(c)(8) of the Balanced Budget and
Emergency Deficit Control Act of 1985.
``(13) The term `biennium' means the period of 2
consecutive fiscal years beginning on October 1 of any odd-
numbered year.''.
SEC. 103. 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. The timetable with respect to the congressional budget
process for any Congress (beginning with the One Hundred Sixteenth
Congress) is as follows:
``First Session
On or before: Action to be completed:
First Monday in April................... President submits budget recommendations.
April 15................................ Congressional Budget Office submits report to Budget Committees.
Not later than 6 weeks after budget Committees submit views and estimates to Budget Committees.
submission.
June 1.................................. Budget Committees report concurrent resolution on the biennial budget.
June 30................................. Congress completes action on concurrent resolution on the biennial
budget.
July 1.................................. Biennial appropriation bills may be considered in the House of
Representatives.
September 15............................ House Appropriations Committee reports last biennial appropriation
bill.
November 15............................. Congress completes action on biennial appropriation bills.
January 1............................... Biennium begins.
``Second Session
On or before: Action to be completed:
First Monday in April................... President submits budget review.
Not later than 6 weeks after President Congressional Budget Office submits report to Budget Committees.
submits budget review.
July 31................................. Congress completes action on reconciliation legislation.''.
SEC. 104. BIENNIAL CONCURRENT RESOLUTIONS ON THE BUDGET.
(a) Contents of Resolution.--Section 301(a) of the Congressional
Budget Act of 1974 (2 U.S.C. 632(a)) is amended--
(1) in the matter preceding paragraph (1), by--
(A) striking ``April 15 of each year'' and
inserting ``June 30 of each odd-numbered year'';
(B) striking ``the fiscal year beginning on October
1 of such year'' the first place it appears and
inserting ``the biennium beginning on January 1 of the
following year'';
(C) striking ``the fiscal year beginning on October
1 of such year'' the second place it appears and
inserting ``each fiscal year in such period''; and
(D) striking ``each of the 4 ensuing fiscal years''
and inserting ``each fiscal year in the next 2
bienniums'';
(2) by striking paragraph (4) and inserting the following:
``(4) subtotals of new budget authority and outlays for
nondefense discretionary spending, defense discretionary
spending, Medicare, Medicaid and other health-related spending,
other direct spending (excluding interest), and net
interest;'';
(3) in paragraph (6), by striking ``for the fiscal year''
and inserting ``for each fiscal year in the biennium''; and
(4) in paragraph (7), by striking ``for the fiscal year''
and inserting ``for each fiscal year in the biennium''.
(b) Additional Matters in Concurrent Resolution.--Section 301(b) of
the Congressional Budget Act of 1974 is amended--
(1) by striking paragraph (1), and by striking paragraphs
(6) through (9);
(2) by redesignating paragraphs (2), (3), (4), and (5) as
paragraphs (1), (2), (3), and (4), respectively;
(3) in paragraph (2), as redesignated, by striking ``for
such fiscal year'' and inserting ``for either fiscal year in
such biennium'';
(4) by striking paragraph (3), as redesignated, and
inserting the following:
``(3) set forth such other matters, and require such other
procedures, relating to the budget as may be appropriate to
carry out the purposes of the Act, but shall not include a
suspension or alteration of the application of the motion to
strike a provision as set forth in section 310(d)(2) or
(h)(2)(F);''; and
(5) in paragraph (4), as redesignated, by striking the
semicolon and inserting a period.
(c) Views of Other Committees.--Section 301(d) of the Congressional
Budget Act of 1974 (2 U.S.C. 632(d)) is amended by adding at the end
the following new sentences: ``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.''.
(d) Hearings and Report.--Section 301(e) of the Congressional
Budget Act of 1974 (2 U.S.C. 632(e)) is amended--
(1) in paragraph (1)--
(A) by striking ``fiscal year'' and inserting
``biennium''; and
(B) by inserting after the second sentence the
following: ``On or before June 1 of each odd-numbered
year, 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 January 1 of the following year.'';
(2) in paragraph (2)--
(A) by redesignating subparagraphs (A), (B), (C),
(D), (E), and (F) as subparagraphs (B), (C), (E), (F),
(H), and (I), respectively;
(B) before subparagraph (B) (as redesignated), by
inserting the following new subparagraph:
``(A) new budget authority and outlays for each
major functional category, based on allocations of the
total levels set forth pursuant to subsection
(a)(1);'';
(C) in subparagraph (C) (as redesignated), by
striking ``mandatory'' and inserting ``direct
spending''; and
(D) after subparagraph (C) (as redesignated), by
inserting the following new subparagraph:
``(D) total outlays, total Federal revenues, the
surplus or deficit, and new budget authority and
outlays for nondefense discretionary spending, defense
discretionary spending, Medicare, Medicaid and other
health-related spending, other direct spending
(excluding interest), social security and other major
functional categories, as appropriate, and net interest
as set forth in such resolution as a percentage of the
gross domestic product of the United States;''; and
(3) in paragraph (3)--
(A)(i) by redesignating subparagraphs (A) and (B)
as subparagraphs (B) and (C), respectively;
(ii) by striking subparagraphs (C) and (D);
(iii) by redesignating subparagraph (E) as
subparagraph (D); and
(iv) by striking the period and the end of
subparagraph (D), as redesignated, and inserting ``;
and'';
(B) before subparagraph (B), as redesignated, by
inserting the following new subparagraph:
``(A) new budget authority and outlays for each
major functional category, based on allocations of the
total levels set forth pursuant to subsection
(a)(1);''; and
(C) at the end, by adding the following new
subparagraph:
``(E) set forth, if required by subsection (f), the
calendar year in which, in the opinion of the Congress,
the goals for reducing unemployment set forth in
section 4(b) of the Employment Act of 1946 should be
achieved.''.
(e) Goals for Reducing Unemployment.--Section 301(f) of the
Congressional Budget Act of 1974 (2 U.S.C. 632(f)) is amended by
striking ``fiscal year'' each place it appears and inserting
``biennium''.
(f) Economic Assumptions.--Section 301(g)(1) of the Congressional
Budget Act of 1974 (2 U.S.C. 632(g)(1)) is amended by striking ``for a
fiscal year'' and inserting ``for a biennium''.
(g) Section Heading.--The section heading of section 301 of the
Congressional Budget Act of 1974 is amended by striking ``annual'' and
inserting ``biennial''.
(h) Table of Contents.--The item relating to section 301 in the
table of contents set forth in section 1(b) of the Congressional Budget
and Impoundment Control Act of 1974 is amended by striking ``Annual''
and inserting ``Biennial''.
SEC. 105. COMMITTEE ALLOCATIONS.
Section 302 of the Congressional Budget Act of 1974 (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 the first sentence of subsection (b), by striking
``subsection (a)'' and inserting ``subsection (a)(1)'';
(3) in subsection (f)(1)--
(A) by striking ``for a fiscal year'' and inserting
``for a biennium'';
(B) by striking ``the first fiscal year'' and
inserting ``either fiscal year of the biennium''; and
(C) in subparagraph (A), by striking ``as
reported'';
(4) 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
(5) by striking subsection (g).
SEC. 106. MULTIYEAR AUTHORIZATIONS OF APPROPRIATIONS.
(a) In General.--Title III of the Congressional Budget Act of 1974
is amended by adding after section 315 the following new section:
``multiyear authorizations of appropriations
``Sec. 316. (a) It shall not be in order in the House of
Representatives or the Senate to consider any measure that contains an
authorization of appropriations for any purpose unless the measure
includes such an authorization of appropriations for that purpose for
not less than each fiscal year in one or more bienniums.
``(b)(1) For purposes of this section, an 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) Subsection (a) 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.'.
``(c) For purposes of this section, the term `measure' means a
bill, joint resolution, amendment, motion, or conference report.''.
(b) Conforming Amendment.--The table of contents set forth in
section 1(b) of the Congressional Budget and Impoundment Control Act of
1974 is amended by inserting after the item relating to section 315 the
following new item:
``Sec. 316. Multiyear authorizations of appropriations.''.
SEC. 107. ADDITIONAL AMENDMENTS TO THE CONGRESSIONAL BUDGET ACT OF 1974
TO EFFECTUATE BIENNIAL BUDGETING.
(a) Definitions.--Section 3 of the Congressional Budget and
Impoundment Control Act of 1974, as amended, is further amended by
adding at the end the following new paragraphs:
``(14) The term `Medicare' means programs within budget
function 570.
``(15) The term `Medicaid and other health-related
spending' means programs within budget function 550.
``(16) The term `other direct spending' means programs
other than those within budget functions 550 and 570, excluding
Social Security and net interest.''.
(b) Completion of House Committee Action on Appropriation Bills.--
Section 307 of the Congressional Budget Act of 1974 (2 U.S.C. 638) is
amended--
(1) by striking ``each year'' and inserting ``each odd-
numbered year'';
(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''.
(c) Completion of House Action on Regular Appropriation Bills.--
Section 309 of the Congressional Budget Act of 1974 (2 U.S.C. 640) is
amended to read as follows:
``house approval of regulation appropriation bills
``Sec. 309. It shall not be in order in the House of
Representatives to consider any resolution providing for an adjournment
period of more than three calendar days during the months of November
and December of any odd-numbered calendar year until the House of
Representatives has approved annual appropriation bills providing new
budget authority under the jurisdiction of all the subcommittees of the
Committee on Appropriations for the fiscal year beginning on January 1
of the following year.''.
(d) Reconciliation Process.--Section 310 of the Congressional
Budget Act of 1974 (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).
(e) Section 311 Point of Order.--
(1) In the house of representatives.--Section 311(a)(1) of
the Congressional Budget Act of 1974 (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 the Congressional
Budget Act of 1974 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 the
Congressional Budget Act of 1974 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''.
(4) Exception.--Section 311(c) of the Congressional Budget
Act of 1974 is amended by inserting ``with respect to new
budget authority or outlays'' after ``shall not apply''.
(f) 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''.
Subtitle B--Conforming Amendments to the Rules of the House of
Representatives and the Congressional Budget Act of 1974
SEC. 111. RULES COMMITTEE RECOMMENDATIONS.
Not later than 180 days after the date of enactment of this Act,
the Committee on Rules of the House of Representatives shall submit to
the House conforming amendments to the Rules of the House of
Representatives to effectuate this title.
SEC. 112. CONFORMING AMENDMENTS TO THE CONGRESSIONAL BUDGET ACT OF
1974.
(a) Section 202(e).--Section 202(e)(1)(C) of the Congressional
Budget Act of 1974 is amended by striking ``(b)(2)(A) and for excise
taxes assumed to be extended under section 257(b)(2)(C)''.
(b) Section 302(f)(1).--Section 302(f)(1) of the Congressional
Budget Act of 1974 is amended by inserting ``or outlays'' after ``new
budget authority''.
(c) Section 308(a).--Section 308(a)(3)(C) of the Congressional
Budget Act of 1974 is repealed.
(d) Section 308(d).--Section 308(d) of the Congressional Budget Act
of 1974 is amended by striking ``252(d)(5)'' and inserting ``252(c)''.
Subtitle C--Conforming Amendments to Titles 1, 5, 31, and 39, United
States Code
SEC. 121. TWO-YEAR APPROPRIATIONS; TITLE AND STYLE OF APPROPRIATION
ACTS.
Section 105 of title 1, United States Code, is amended to read as
follows:
``Sec. 105. Title and style of appropriation 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(13) of the Congressional Budget and
Impoundment Control Act of 1974 (2 U.S.C. 622(13)).''.
SEC. 122. AMENDMENTS TO TITLE 31, UNITED STATES CODE.
(a) Definition.--Section 1101 of title 31, United States Code, is
amended by adding at the end the following new paragraph:
``(3) `biennium' has the meaning given to such term in
paragraph (13) of section 3 of the Congressional Budget and
Impoundment Control Act of 1974 (2 U.S.C. 622(12)).''.
(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 April of each odd-numbered
year, beginning with the One Hundred Sixteenth Congress, the President
shall transmit to the Congress the budget for the biennium beginning on
January 1 of the following 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
submission 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) Budget contents and submission to congress.--Section
1105(a)(28) of title 31, United States Code, is amended by
striking ``beginning with fiscal year 1999, a'' and inserting
``beginning with fiscal year 2020, a biennial''.
(12) Information supporting biennial budgets.--Section
1105(a) of title 31, United States Code, is amended by adding
at the end the following new paragraphs:
``(40) Totals of new budget authority and outlays.
``(41) Total Federal revenues and the amount, if any, by
which the aggregate level of Federal revenues should be
increased or decreased by bills and resolutions to be reported
by the appropriate committees.
``(42) The surplus or deficit in the budget.
``(43) Subtotals of new budget authority and outlays for
nondefense discretionary spending, defense discretionary
spending, direct spending (excluding interest), contingencies,
and net interest.
``(44) The public debt.''.
(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) Additional Outyear Data.--Section 1105(d) of title 31, United
States Code, is amended by inserting ``(1)'' after ``(d)'' and by
adding at the end the following new paragraph:
``(2) Each budget submission shall include a budget message and
summary and supporting information and, as a separately delineated
statement, the levels required in paragraphs (40) through (44) of
subsection (a) for at least each of the 4 ensuing fiscal years after
the biennium covered by the budget submission under such subsection.''.
(f) 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''.
(g) 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) striking ``Before July 16 of each
year'' and inserting ``Before April 7 of each
even-numbered year and before September 15 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 ``at least 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) striking ``Before July 16 of each year'' and
inserting ``Before April 7 of each even-numbered year
and before September 15 of each year'' after .
(h) Current Programs, Projects, 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 ``before March 1 of
each year'' and inserting ``within 6 weeks of the President's
budget submission for each odd-numbered year''.
(i) Year-Ahead Requests for Authorizing Legislation.--Section 1110
of title 31, United States Code, is hereby repealed.
(j) 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''.
(k) 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''.
(l) 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 2020, 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''.
SEC. 123. GOVERNMENT STRATEGIC AND PERFORMANCE PLANS ON A BIENNIAL
BASIS.
(a) Strategic Plans.--
(1) Title 5.--Section 306 of title 5, United States Code,
is amended by striking ``February of any year following'' and
inserting ``April of''.
(2) Title 39.--Section 2802 of title 39, United States
Code, is amended--
(A) in subsection (a), by striking ``September 30,
1997'' and inserting ``September 30, 2020'';
(B) in subsection (b), by--
(i) striking ``five years forward'' and
inserting ``six years forward''; and
(ii) striking ``at least every three
years'' and inserting ``at least every 4
years''; and
(C) in subsection (c), by inserting ``, including a
strategic plan submitted by September 30, 2020, meeting
the requirements of subsection (a)'' before the period.
(b) 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.''.
Subtitle D--Change of Fiscal Year
SEC. 131. CHANGE OF FISCAL YEAR.
(a) Change of Calendar Period.--Section 1102 of title 31, United
States Code, is amended--
(1) by striking ``October 1'' and inserting ``January 1'';
and
(2) by striking ``September 30 of the following year'' and
inserting ``December 31 of that year''.
(b) Effective Date.--The amendments made by subsection (a) shall be
effective on January 1, 2020.
(c) Transition.--During the period between October 1, 2019, and
December 31, 2019, Congress shall provide discretionary appropriations
at a rate comparable to the rate of funding provided in fiscal year
2019.
TITLE II--DIRECT SPENDING PROGRAMS SUBJECT TO ANNUAL APPROPRIATIONS
SEC. 201. ANNUAL APPROPRIATIONS REQUIRED FOR DIRECT SPENDING PROGRAMS.
(a) In General.--Title III of the Congressional Budget Act of 1974
is further amended by adding after section 316, as added by section
106(a) of this Act, the following:
``annual appropriations required for direct spending programs
``Sec. 317. (a) Notwithstanding any other provision of law, in the
biennium beginning in fiscal year 2020 and each biennium thereafter--
``(1) each direct spending program shall be subject to annual
discretionary appropriations; and
``(2) no funds may be obligated for any such program using any
amounts other than amounts provided in advance in appropriations Acts.
``(b) In this section--
``(1) the term `biennium' has the meaning given that term
in section 3(13); and
``(2) the term `direct spending program'--
``(A) means--
``(i) any program with respect to which
budget authority is provided (before the date
of enactment of this section) by law other than
appropriation Acts;
``(ii) any program that is funded (before
the date of enactment of this section) through
entitlement authority; and
``(iii) the Supplemental Nutrition
Assistance Program; and
``(B) does not include--
``(i) the old-age and survivors insurance
program established under title II of the
Social Security Act (42 U.S.C. 401 et seq.),
but not including disability insurance benefits
under section 223 of such Act (42 U.S.C. 423);
``(ii) Medicare programs;
``(iii) all programs administered by the
Department of Veterans Affairs; and
``(iv) the TRICARE program (as defined in
section 1072 of title 10, United States
Code).''.
(b) Clerical Amendment.--The table of contents set forth in section
1(b) of such Act is further amended by inserting after the item
relating to section 316 the following new items:
``Sec. 317. Annual appropriations required for direct spending
programs.''.
(c) President's Budget Submission.--Section 1105(a) of title 31,
United States Code, as amended by section 122(b)(12), is further
amended by adding at the end the following:
``(45) such information as is necessary for the making of
accurate biennial appropriations for direct spending programs
subject to the biennial appropriations process, and
recommendations on legislative changes to bring spending on
such programs to a sustainable basis, if applicable.''.
(d) Rules Committee Recommendations.--Not later than 180 days after
the date of enactment of this Act, the Committee on Rules of the House
of Representatives shall submit to the House conforming amendments to
the Rules of the House of Representatives to effectuate this title,
including the requirement that the authority to appropriate funds for
direct spending programs subject to the biennial appropriations process
is with the Committee on Appropriations.
TITLE III--ZERO-BASED BUDGETING
SEC. 301. ZERO-BASED BUDGETING.
Section 1105 of title 31, United States Code, is amended--
(1) by striking subsection (a)(2) and inserting the
following:
``(2) consistent with subsection (i), a budget for each
department and agency which contains the following
information--
``(A) A description of each activity for which the
department or agency receives an appropriation in the
current fiscal year or for which the department or
agency requests an appropriation for the budget year.
``(B) The legal basis for each activity.
``(C) For each activity, three alternative funding
levels for the budget year, and a summary of the
priorities that would be accomplished within each
level, and the additional increments of value that
would be added by the higher funding levels. At least
two of these funding levels shall be below the funding
level for the current fiscal year.
``(D) For each activity, one or more measures of
its cost efficiency and effectiveness.''; and
(2) by adding at the end the following:
``(i) As soon as practicable, the Director of the Office of
Management and Budget shall publish guidelines to carry out subsection
(a)(2). The guidelines shall require that the baseline budget of each
department or agency is assumed to be zero and each proposed
expenditure shall be justified as if it were a new expenditure.''.
TITLE IV--PROCEDURE FOR CONSIDERATION OF APPROPRIATIONS MEASURES
CONSISTENT WITH A BUDGET RESOLUTION
SEC. 401. ADOPTION OF RECONCILIATION PROCEDURES FOR APPROPRIATIONS
BILLS.
(a) In General.--Title III of the Congressional Budget Act of 1974
is further amended by adding after section 317, as added by section
201(a) of this Act, the following:
``senate procedures for appropriations bills
``Sec. 318. (a) An appropriation bill or joint resolution reported
by the Senate Committee on Appropriations in compliance with the
allocations made under section 302(b) shall be privileged in the United
States Senate and the motion to proceed shall be non-debatable. Except
as provided in paragraph (2), the provisions of section 305 shall also
apply to the consideration in the Senate of appropriations bills that
comply with the allocations made under section 302(b).
``(b) Debate in the Senate on any appropriations measure reported
under this subsection, and all amendments thereto and debatable motions
and appeals in connection therewith, shall be limited to not more than
20 hours, except in the case of an omnibus appropriations bill, where
each subcommittees section shall be subject to 20 hours of debate.
``extraneous matter in appropriations measures
``Sec. 319. (a) Upon a point of order being made by any Senator
against material extraneous to an appropriations measure as defined by
this section, and the point of order is sustained by the Chair, any
part of said title or provision that contains material extraneous shall
be deemed stricken from the bill and may not be offered as an amendment
from the floor.
``(b) A provision of an appropriations measure considered pursuant
to this section shall be considered extraneous if it authorizes or
otherwise establishes one or more Federal agencies or programs,
establishes new terms and conditions under which a program or agency
operates, authorizes the enactment of appropriations, or otherwise
specifies how appropriated funds are to be used. Notwithstanding the
previous sentence, limitation amendments or amendments to direct
spending programs that are subject to the appropriations process which
make such programs consistent with their 302(b) allocation shall not be
considered extraneous.
``(c) Upon the reporting or discharge of an appropriations measure,
and upon the submission of a conference report on such appropriations
measure, the Committee on Appropriations of the Senate shall submit for
the record a list of material considered to be extraneous under this
section. The inclusion or exclusion of a provision shall not constitute
a determination of extraneousness by the Presiding Officer of the
Senate.
``(d) When the Senate is considering a conference report on, or an
amendment between the Houses in relation to, an appropriations measure
considered pursuant to this section, upon--
``(1) a point of order being made by any Senator against
extraneous material pursuant to this section; and
``(2) such point of order being sustained,
such material contained in such conference report or amendment shall be
deemed stricken, and the Senate shall proceed, without intervening
action or motion, to consider the question of whether the Senate shall
recede from its amendment and concur with a further amendment, or
concur in the House amendment with a further amendment, as the case may
be, which further amendment shall consist of only that portion of the
conference report or House amendment, as the case may be, not so
stricken. Any such motion in the Senate shall be debatable for two
hours. In any case in which such point of order is sustained against a
conference report (or Senate amendment derived from such conference
report by operation of this subsection), no further amendment shall be
in order.
``(e) Notwithstanding any other law or rule of the Senate, it shall
be in order for a Senator to raise a single point of order that several
provisions of a bill, joint resolution, amendment, motion, or
conference report violates this section. The Presiding Officer may
sustain the point of order as to some or all of the provisions against
which the Senator raised the point of order. If the Presiding Officer
so sustains the point of order as to some of the provisions (including
provisions of an amendment, motion, or conference report) against which
the Senator raised the point of order, then only those provisions
(including provisions of an amendment, motion, or conference report)
against which the Presiding Officer sustains the point of order shall
be deemed stricken pursuant to this section. Before the Presiding
Officer rules on such a point of order, any Senator may move to waive
such a point of order as it applies to some or all of the provisions
against which the point of order was raised by the affirmative vote of
three-fifths of the Members, duly chosen and sworn. Such a motion to
waive is amendable in accordance with the rules and precedents of the
Senate. After the Presiding Officer rules on such a point of order, any
Senator may appeal the ruling of the Presiding Officer on such a point
of order as it applies to some or all of the provisions on which the
Presiding Officer ruled.''.
(b) Conforming and Clerical Amendments.--
(1) Conforming.--Section 904(c)(1) of the Congressional
Budget and Impoundment Control Act of 1974 is amended by
inserting ``319,'' after ``313,''.
(2) Clerical.--The table of contents set forth in section
1(b) of such Act is further amended by inserting after the item
relating to section 316 the following new items:
``Sec. 318. Senate procedures for appropriations bills.
``Sec. 319. Extraneous matter in appropriations measures.''.
TITLE V--NO BUDGET NO PAY
SEC. 501. NO BUDGET NO PAY.
(a) Holding Salaries in Escrow.--
(1) In general.--If by June 30, 2019, and June 30th of the
first year of a Congress (beginning with the 117th Congress),
both Houses of Congress have not jointly agreed to a concurrent
resolution on the budget, during the period described in
paragraph (2) the payroll administrator of each House of
Congress shall deposit in an escrow account all payments
otherwise required to be made during such period for the
compensation of Members of Congress and shall release such
payments to such Members only upon the expiration of such
period.
(2) Period described.--The period described in this
paragraph is the period which begins on June 30, 2019, or June
30th of the first year of a Congress, and ends on the earlier
of--
(A) the day on which both House of Congress agree
to a concurrent resolution on the budget for that
Congress pursuant to section 301 of the Congressional
Budget Act of 1974; or
(B) the last day of the applicable Congress.
(3) Withholding and remittance of amounts from payments
held in escrow.--The payroll administrator shall provide for
the same withholding and remittance with respect to a payment
deposited in an escrow account under paragraph (1) that would
apply to the payment if the payment were not subject to
paragraph (1).
(4) Release of amounts at end of the congress.--In order to
ensure that this section is carried out in a manner that shall
not vary the compensation of Senators or Representatives in
violation of the twenty-seventh article of amendment to the
Constitution of the United States, the payroll administrator of
a House of Congress shall release for payments to Members of
that House of Congress any amounts remaining in any escrow
account under this section on the last day of the One Hundred
Sixteenth Congress or the Congress in which the amounts were
withheld (as the case may be).
(5) Role of secretary of the treasury.--The Secretary of
the Treasury shall provide the payroll administrators of the
Houses of Congress with such assistance as may be necessary to
enable the payroll administrators to carry out this section.
(b) Treatment of Delegates as Members.--In this section, the term
``Member of Congress'' includes a Delegate or Resident Commissioner to
the Congress.
(c) Payroll Administrator Defined.--In this section, the ``payroll
administrator'' of a House of Congress means--
(1) in the case of the House of Representatives, the Chief
Administrative Officer of the House of Representatives, or an
employee of the Office of the Chief Administrative Officer who
is designated by the Chief Administrative Officer to carry out
this section; and
(2) in the case of the Senate, the Secretary of the Senate,
or an employee of the Office of the Secretary of the Senate who
is designated by the Secretary to carry out this section.
TITLE VI--REPEAL OF SEQUESTRATION
SEC. 601. REPEAL OF SEQUESTRATION.
(a) In General.--The Balanced Budget and Emergency Deficit Control
Act of 1985 (2 U.S.C. 900 et seq.) is amended--
(1) in section 251--
(A) in subsection (b)--
(i) in subparagraphs (B) and (C)--
(I) by inserting ``and'' at the end
of subclause (VII);
(II) by striking the semi-colon at
the end of subclause (VIII) and
inserting a period; and
(III) by striking subclauses (IX)
and (X); and
(ii) in subparagraph (D), by striking
``through 2021'' and inserting ``through
2019''; and
(B) in subsection (c)--
(i) in paragraph (6)(B), by adding ``and''
at the end of subparagraph (B);
(ii) in paragraph (7)(B), by striking
``and'' at the end; and
(iii) by striking paragraph (8);
(2) in section 251A--
(A) by striking ``through 2021'' in each instance
it appears and inserting ``through 2019''; and
(B) by striking paragraph (6)(B) and (C); and
(3) in section 254(c)(2) and (f)(2)(A), by striking
``through 2021'' in each instance it appears and inserting
``through 2019''.
(b) Effective Date.--Notwithstanding section 701, the amendments
made by this title shall take effect on the date of enactment of this
Act.
SEC. 602. EXCLUSION FROM PAYGO SCORECARDS.
(a) Statutory Pay-As-You-Go Scorecards.--The budgetary effects of
this title shall not be entered on either PAYGO scorecard maintained
pursuant to section 4(d) of the Statutory Pay-As-You-Go Act of 2010.
(b) Senate PAYGO Scorecards.--The budgetary effects of this title
shall not be entered on any PAYGO scorecard maintained for purposes of
section 201 of S. Con. Res. 21 (110th Congress).
TITLE VII--MISCELLANEOUS PROVISIONS
SEC. 701. EFFECTIVE DATE.
Unless specifically provided for otherwise in this Act, the
amendments made by this Act shall take effect immediately before noon
January 3, 2019.
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