Title: Bipartisan Budget and Appropriations Reform Act of 2019
Policy area: Economics and Public Finance

Summary:
Bipartisan Budget and Appropriations Reform Act of 2019
This bill modifies the federal budget process to require biennial congressional budget resolutions, instead of the annual budget resolutions required under current law. The bill retains the existing annual process for budget reconciliation and appropriations bills.
The bill also modifies the budget process to

[Congressional Bills 116th Congress]
[From the U.S. Government Publishing Office]
[S. 63 Introduced in Senate (IS)]

<DOC>






116th CONGRESS
  1st Session
                                 S. 63

   To implement the recommendations of the Joint Select Committee on 
               Budget and Appropriations Process Reform.


_______________________________________________________________________


                   IN THE SENATE OF THE UNITED STATES

                            January 9, 2019

  Mr. Whitehouse (for himself and Mr. Blunt) introduced the following 
 bill; which was read twice and referred to the Committee on the Budget

_______________________________________________________________________

                                 A BILL


 
   To implement the recommendations of the Joint Select Committee on 
               Budget and Appropriations Process Reform.

    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 ``Bipartisan Budget 
and Appropriations Reform Act of 2019''.
    (b) Table of Contents.--The table of contents for this Act is as 
follows:

Sec. 1. Short title; table of contents.
                  TITLE I--BIENNIAL BUDGET RESOLUTIONS

Sec. 101. Purposes.
Sec. 102. Definitions.
Sec. 103. Revision of timetable.
Sec. 104. Biennial concurrent resolutions on the budget.
Sec. 105. Committee allocations.
Sec. 106. Revision of biennial budget.
Sec. 107. Additional amendments to the Congressional Budget Act of 1974 
                            to effectuate biennial budgeting.
Sec. 108. Reconciliation process.
Sec. 109. Bipartisan budget resolution.
                        TITLE II--OTHER MATTERS

Sec. 201. Views and estimates of committees.
Sec. 202. Annual supplemental budget submission by the President.
Sec. 203. Hearing on the fiscal state of the Nation.
Sec. 204. Reform of Senate Budget Committee.

                  TITLE I--BIENNIAL BUDGET RESOLUTIONS

SEC. 101. PURPOSES.

    Paragraph (2) of section 2 of the Congressional Budget and 
Impoundment Control Act of 1974 is amended to read as follows:
            ``(2) to facilitate the determination biennially of the 
        appropriate level of Federal revenues and expenditures by the 
        Congress;''.

SEC. 102. DEFINITIONS.

    Section 3 of the Congressional Budget and Impoundment Control Act 
of 1974 (2 U.S.C. 622) is amended--
            (1) in paragraph (4), by striking ``for a fiscal year'' 
        each place it appears and inserting ``for a biennium''; and
            (2) 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 any period of 2 
        consecutive fiscal years beginning with an even-numbered fiscal 
        year.
            ``(14) The term `budget year' has the meaning given that 
        term in section 250(c)(12) of the Balanced Budget and Emergency 
        Control Act of 1985.''.

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 is as follows:


                                                 ``First Session
On or before:                             Action to be completed:
February 15.............................  Congressional Budget Office submits report to Budget Committees.
 March 1................................  Committees submit views and estimates to Budget Committees.
April 1.................................  Senate Budget Committee reports biennial budget.
May 1...................................  Congress completes action on the biennial budget.
May 15..................................  Appropriation bills may be considered in the House of Representatives.
June 10.................................  House Appropriations Committee reports last annual appropriation bill.
October 1...............................  First fiscal year of the biennium begins.
 



                                                ``Second Session
On or before:                             Action to be completed:
February 15.............................  Congressional Budget Office submits report to Budget Committees.
June 10.................................  House Appropriations Committee reports last annual appropriation bill.
October 1...............................  Second fiscal year of the biennium begins.''.
 

SEC. 104. BIENNIAL CONCURRENT RESOLUTIONS ON THE BUDGET.

    (a) Contents of Resolution.--
            (1) In general.--Section 301(a) of the Congressional Budget 
        Act of 1974 (2 U.S.C. 632(a)) is amended--
                    (A) by striking the matter preceding paragraph (1) 
                beginning with ``On or before April 15'' and inserting 
                the following: ``On or before May 1 of each odd-
                numbered calendar year, the Congress shall complete 
                action on a concurrent resolution on the budget for the 
                biennium beginning on October 1 of that calendar year. 
                The concurrent resolution shall set forth appropriate 
                levels for each fiscal year in the biennium and for at 
                least each fiscal year in the next 2 bienniums for the 
                following--'';
                    (B) in paragraph (6)--
                            (i) by striking ``for the fiscal year'' and 
                        inserting ``for each fiscal year in the 
                        biennium''; and
                            (ii) by striking ``and'' at the end;
                    (C) in paragraph (7)--
                            (i) by striking ``for the fiscal year'' and 
                        inserting ``for each fiscal year in the 
                        biennium''; and
                            (ii) by striking the period at the end and 
                        inserting ``; and'';
                    (D) by adding after paragraph (7) the following:
            ``(8) subtotals of new budget authority and outlays for 
        nondefense discretionary spending; defense discretionary 
        spending; direct spending; and net interest.''; and
                    (E) by adding at the end of the matter following 
                paragraph (8) (as added by subparagraph (D)) the 
                following: ``The concurrent resolution on the budget 
                for a biennium shall include procedures for adjusting 
                spending and revenue levels, committee allocations, and 
                other amounts in the resolution during the second 
                session of a Congress to reflect an updated baseline 
                that will be used for scoring purposes.''.
    (b) Additional Matters in Concurrent Resolution.--Section 301(b) of 
the Congressional Budget Act of 1974 (2 U.S.C. 632(b)) is amended--
            (1) in paragraph (3), by striking ``for such fiscal year'' 
        and inserting ``for either fiscal year in such biennium'';
            (2) in paragraph (8), by striking ``and'' at the end;
            (3) in paragraph (9), by striking the period at the end and 
        inserting ``; and''; and
            (4) by adding at the end the following:
            ``(10) include total combined outlays and revenues for tax 
        expenditures.''.
    (c) Hearings and Report.--Section 301(e)(1) of the Congressional 
Budget Act of 1974 (2 U.S.C. 632(e)) is amended by striking ``fiscal 
year'' and inserting ``biennium''.
    (d) 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''.
    (e) Economic Assumptions.--Section 301(g) of the Congressional 
Budget Act of 1974 (2 U.S.C. 632(g)) is amended by striking ``for a 
fiscal year'' and inserting ``for a biennium''.
    (f) Section Heading.--The section heading of section 301 of the 
Congressional Budget Act of 1974 (2 U.S.C. 632) is amended by striking 
``annual adoption of'' and inserting ``adoption of 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)--
                    (A) by striking ``for that period of fiscal years'' 
                and inserting ``for all fiscal years covered by the 
                resolution''; and
                    (B) by striking ``only for the fiscal year of that 
                resolution'' and inserting ``only for each fiscal year 
                of the biennium'';
            (2) in subsection (c)--
                    (A) by striking ``subsection (a)'' and inserting 
                ``subsection (a)(1)'';
                    (B) by striking ``for a fiscal year'' and inserting 
                ``for a budget year''; and
                    (C) by striking ``for that fiscal year'' and 
                inserting ``for that budget year'';
            (3) in subsection (f)(1)--
                    (A) by striking ``for a fiscal year''; and
                    (B) by striking ``the first fiscal year'' and 
                inserting ``either fiscal year of the biennium of that 
                resolution''; and
            (4) in subsection (f)(2)(A), by--
                    (A) striking ``first fiscal year'' and inserting 
                ``either fiscal year of the biennium of that 
                resolution''; and
                    (B) striking ``the total of fiscal years'' and 
                inserting ``the total of all fiscal years covered by 
                the resolution''.

SEC. 106. REVISION OF BIENNIAL BUDGET.

    Section 304 of the Congressional Budget Act of 1974 (2 U.S.C. 635) 
is amended to read as follows:

    ``permissible revisions of concurrent resolutions on the budget

    ``Sec. 304. At any time after the concurrent resolution on the 
budget has been agreed to pursuant to section 301 and before the end of 
the biennium, the two Houses may adopt a concurrent resolution that 
revises or reaffirms the most recently agreed to concurrent resolution 
on the budget. Any concurrent resolution that revises or reaffirms the 
most recently agreed to concurrent resolution on the budget shall be 
considered under the procedures set forth in section 305.''.

SEC. 107. ADDITIONAL AMENDMENTS TO THE CONGRESSIONAL BUDGET ACT OF 1974 
              TO EFFECTUATE BIENNIAL BUDGETING.

    (a) Enforcement of Section 303.--Section 303 of the Congressional 
Budget Act of 1974 (2 U.S.C. 634) is amended--
            (1) in subsection (a)--
                    (A) by striking ``for a fiscal year'' and inserting 
                ``for a biennium''; and
                    (B) by striking ``the first fiscal year covered by 
                that resolution'' and inserting ``either fiscal year of 
                that biennium'';
            (2) in subsection (b)(1)(B), by striking ``the fiscal 
        year'' and inserting ``the biennium''; and
            (3) in subsection (c)--
                    (A) in paragraph (1)--
                            (i) by striking ``for a fiscal year'' and 
                        inserting ``for a biennium''; and
                            (ii) by striking ``for that year'' in each 
                        instance and inserting ``for each year of that 
                        biennium''; and
                    (B) in paragraph (2), by striking ``after the year 
                the allocation referred to in that paragraph is made'' 
                and inserting ``after the years the allocations 
                referred to in that paragraph are made''.
    (b) Section 305.--Subsections (a)(3) and (b)(3) of section 305 of 
the Congressional Budget Act of 1974 (2 U.S.C. 636) are amended by 
striking ``for a fiscal year''.
    (c) 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'';
                    (B) by striking ``the first fiscal year'' each 
                place it appears and inserting ``either of the first 
                two fiscal years covered by such resolution''; and
                    (C) by striking ``that first fiscal year'' and 
                inserting ``either of the first two fiscal years''.
            (2) In the senate.--Section 311(a)(2) of the Congressional 
        Budget Act of 1974 (2 U.S.C. 642(a)(2)) is amended--
                    (A) in subparagraph (A), by striking ``for the 
                first fiscal year'' and inserting ``for either of the 
                first two fiscal years''; and
                    (B) in subparagraph (B)--
                            (i) by striking ``that first fiscal year'' 
                        the first place it appears and inserting 
                        ``either of the first two fiscal years''; 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 (2 U.S.C. 642(a)(2)) is 
        amended by--
                    (A) striking ``for the first fiscal year'' and 
                inserting ``for either of the first two fiscal years''; 
                and
                    (B) striking ``that fiscal year and the ensuing 
                fiscal years'' and inserting ``all fiscal years''.

SEC. 108. RECONCILIATION PROCESS.

    Section 310(a) of the Congressional Budget Act of 1974 (2 U.S.C. 
641(a)) is amended--
            (1) in the matter before paragraph (1), by striking ``A 
        concurrent'' and all that follows through ``shall'' and 
        inserting ``A concurrent resolution on the budget for a 
        biennium shall, for each fiscal year of the biennium'';
            (2) in paragraph (1)(A), by striking ``for such fiscal 
        year'' and inserting ``for each fiscal year of the biennium'';
            (3) in paragraph (1)(C), by striking ``such fiscal year'' 
        and inserting ``each fiscal year of the biennium''; and
            (4) in paragraph (1)(D), by striking ``such fiscal year'' 
        and inserting ``each fiscal year of the biennium''.

SEC. 109. BIPARTISAN BUDGET RESOLUTION.

    (a) Definition.--Section 3 of the Congressional Budget and 
Impoundment Control Act of 1974 (2 U.S.C. 622), as amended by section 
102, is further amended by adding at the end the following:
            ``(15) The term `bipartisan budget resolution' means a 
        concurrent resolution on the budget for a biennium--
                    ``(A) ordered reported to the Senate by the 
                Committee on the Budget of the Senate by an affirmative 
                vote of not less than half of the Senators that are 
                members of the majority party in the Senate and not 
                less than half of the Senators that are members of the 
                minority party in the Senate;
                    ``(B) that establishes--
                            ``(i) a target for the ratio of the public 
                        debt to the gross domestic product as of the 
                        end of the period covered by the concurrent 
                        resolution or a later date; and
                            ``(ii) for each fiscal year covered by the 
                        concurrent resolution, targets for--
                                    ``(I) the ratio of the public debt 
                                to the gross domestic product;
                                    ``(II) the amount of health care 
                                spending by the Government;
                                    ``(III) the amount of tax 
                                expenditures;
                                    ``(IV) the amount of discretionary 
                                appropriations (as defined in section 
                                250 of the Balanced Budget and 
                                Emergency Deficit Control Act of 1985 
                                (2 U.S.C. 900)); and
                                    ``(V) the amount of revenues; and
                    ``(C) which may include other economic or policy 
                targets.''.
    (b) Consideration of Bipartisan Budget Resolutions.--Section 305 of 
the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 
636) is amended by adding at the end the following:
    ``(e) Procedures in the Senate for Bipartisan Budget Resolutions.--
            ``(1) Other expedited process.--In the Senate, upon the 
        agreement of the majority leader and the minority leader, 
        additional procedures to expedite consideration of a bipartisan 
        budget resolution (which may include limiting the number of 
        amendments upon which the Senate shall vote) shall apply to 
        consideration of the bipartisan budget resolution. The majority 
        leader shall submit a written statement for the Congressional 
        Record reflecting any agreement described in this paragraph.
            ``(2) Passage.--In the Senate, a bipartisan budget 
        resolution shall be agreed to only upon the affirmative vote of 
        not less than--
                    ``(A) three-fifths of the Members, duly chosen and 
                sworn; and
                    ``(B) 15 Members that are members of the minority 
                party in the Senate.
            ``(3) Amendments between the houses and conference 
        reports.--To be considered a bipartisan budget resolution, a 
        conference report or an amendment between the Houses on a 
        concurrent resolution on the budget shall--
                    ``(A) comply with section 3(15)(B); and
                    ``(B) be agreed to in the Senate by an affirmative 
                vote of not less than--
                            ``(i) three-fifths of the Members, duly 
                        chosen and sworn; and
                            ``(ii) 15 Members that are members of the 
                        minority party in the Senate.''.
    (c) Reconciliation Under Bipartisan Budget Resolutions.--Section 
310(e)(2) of the Congressional Budget and Impoundment Control Act of 
1974 (2 U.S.C. 641(e)(2)) is amended--
            (1) by inserting ``(A)'' before ``Debate''; and
            (2) by adding at the end the following:
            ``(B) In the Senate, a reconciliation bill reported under 
        subsection (b) pursuant to reconciliation instructions in a 
        bipartisan budget resolution, a House amendment thereto, and a 
        conference report thereon shall be agreed to only upon the 
        affirmative vote of not less than--
                    ``(i) a majority of the Members voting, a quorum 
                being present; and
                    ``(ii) 15 Members that are members of the minority 
                party in the Senate.''.
    (d) Reporting.--Section 202 of the Congressional Budget and 
Impoundment Control Act of 1974 (2 U.S.C. 603) is amended by adding at 
the end the following:
    ``(h) Report on Ratio of the Public Debt to the Gross Domestic 
Product.--On and after the date on which the first bipartisan budget 
resolution is agreed to, the Director of the Congressional Budget 
Office shall submit to Congress semiannual reports on the ratio of the 
public debt to the gross domestic product, which shall evaluate whether 
the targets in the most recently agreed to bipartisan budget resolution 
have been met.''.

                        TITLE II--OTHER MATTERS

SEC. 201. VIEWS AND ESTIMATES OF COMMITTEES.

    Section 301(d) of the Congressional Budget and Impoundment Control 
Act of 1974 (2 U.S.C. 632(d)) is amended to read as follows:
    ``(d) Views and Estimates of Other Committees.--
            ``(1) In general.--Not later than March 1 of the first 
        session of a Congress, or upon the request of the Committee on 
        the Budget of the House of Representatives or the Senate, each 
        committee of the House of Representatives and the Senate having 
        legislative jurisdiction shall submit to its respective 
        Committee on the Budget its views and estimates (as determined 
        by the committee making such submission) with respect to the 
        following:
                    ``(A) Any legislation to be considered during that 
                Congress that is a priority for the committee.
                    ``(B) Any legislation within the jurisdiction of 
                the committee that would establish, amend, or 
                reauthorize any Federal program and likely have a 
                significant budgetary impact.
            ``(2) Additional matters.--Any committee of the House of 
        Representatives or the Senate and any joint committee of the 
        Congress may submit to the appropriate Committees on the Budget 
        its views and estimates with respect to all matters set forth 
        in subsections (a) and (b) which relate to matters within its 
        jurisdiction.
            ``(3) Joint economic committee.--The Joint Economic 
        Committee shall submit to the Committees on the Budget of both 
        Houses its recommendations as to the fiscal policy appropriate 
        to the goals of the Employment Act of 1946.''.

SEC. 202. ANNUAL SUPPLEMENTAL BUDGET SUBMISSION BY THE PRESIDENT.

    Section 1106 of title 31, United States Code, is amended by adding 
at the end the following:
    ``(d) On or before December 1 of each calendar year, the President 
shall submit to Congress an administrative budget for the fiscal year 
beginning in the ensuing calendar year, which shall include up-to-date 
estimates for current year and prior year data and credit reestimates 
for the current year (as included in the Federal credit supplement of 
such budget).''.

SEC. 203. HEARING ON THE FISCAL STATE OF THE NATION.

    (a) In General.--Not later than 45 days (excluding Saturdays, 
Sundays, and holidays) after the date on which the Secretary of the 
Treasury submits to Congress the audited financial statement required 
under paragraph (1) of section 331(e) of title 31, United States Code, 
on a date agreed upon by the chairs of the Committees on the Budget of 
the House of Representatives and the Senate and the Comptroller General 
of the United States, the chairs shall conduct a hearing to receive a 
presentation from the Comptroller General reviewing the findings of the 
audit required under paragraph (2) of such section and providing, with 
respect to the information included by the Secretary in the report 
accompanying such audited financial statement, an analysis of the 
financial position and condition of the Federal Government, including 
financial measures (such as the net operating cost, income, budget 
deficits, or budget surpluses) and sustainability measures (such as the 
long-term fiscal projection or social insurance projection) described 
in such report.
    (b) Effective Date.--The requirement under subsection (a) shall 
apply with respect to any audited financial statement submitted on or 
after the date of the enactment of this Act.

SEC. 204. REFORM OF SENATE BUDGET COMMITTEE.

    In the Senate, the Committee on the Budget shall include the 
following:
            (1) The Chairman and Ranking Member of the Committee on 
        Appropriations.
            (2) The Chairman and Ranking Member of the Committee on 
        Finance.
                                 <all>