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[Congressional Bills 116th Congress]
[From the U.S. Government Publishing Office]
[H.R. 1536 Introduced in House (IH)]

<DOC>

116th CONGRESS
  1st Session
                                H. R. 1536

   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 5, 2019

Mr. Mitchell (for himself and Mr. Byrne) introduced the following bill; 
 which was referred to the Committee on the Budget, and in addition to 
       the Committees on Rules, Oversight and 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; EFFECTIVE DATE.

    (a) Short Title.--This Act may be cited as the ``Protecting Our 
Children's Future Act of 2019''.
    (b) Table of Contents.--The table of contents for this Act is as 
follows:

Sec. 1. Short title; table of contents; effective date.
                      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.
    (c) Effective Date.--Unless specifically provided for otherwise in 
this Act, the amendments made by this Act shall take effect immediately 
before noon on January 3, 2021.

                      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 Seventeenth 
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 Seventeenth 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 2022, 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''.
    (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 2022, 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, 2022'';
                    (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, 2022, 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, 2022.
    (c) Transition.--During the period between October 1, 2021, and 
December 31, 2021, Congress shall provide discretionary appropriations 
at a rate comparable to the rate of funding provided in fiscal year 
2021.

  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 2022 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, 2021, 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, 2021, or June 
        30th of the first year of a Congress, and ends on the earlier 
        of--
                    (A) the day on which both Houses 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 term 
``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.
                                 <all>
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