1. Short title
This Act may be cited as the “Biennial Budgeting and Appropriations Act”.
Biennial Budgeting and Appropriations Act
A BILL
To provide for a biennial budget process and a biennial appropriations process and to enhance oversight and the performance of the Federal Government.
2. Revision of timetable
Section 300 of the Congressional Budget Act of 1974 (2 U.S.C. 631) is amended to read as follows:
“300. Timetable
“(a) In General—Except as provided by subsection (b), the timetable with respect to the congressional budget process for any Congress (beginning with the One Hundred Fourteenth Congress) is as follows:
“(b) Special Rule—In the case of any first session of Congress that begins in any year immediately following a leap year and during which the term of a President (except a President who succeeds himself or herself) begins, the following dates shall supersede those set forth in subsection (a):”
3. Amendments to the Congressional Budget and Impoundment Control Act of 1974
Declaration of Purpose— Section 2(2) of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 621(2)) is amended by striking “each year” and inserting “biennially”.
Definitions—
Budget resolution— Section 3(4) of such Act (2 U.S.C. 622(4)) is amended by striking “fiscal year” each place it appears and inserting “biennium”.
Biennium— Section 3 of such Act (2 U.S.C. 622) is further amended by adding at the end the following new paragraph:
“(12) The term biennium means the period of 2 consecutive fiscal years beginning on October 1 of any odd-numbered year.”
Biennial Concurrent Resolution on the Budget—
Section heading— The section heading of section 301 of such Act (2 U.S.C. 632) is amended by striking “Annual” and inserting “Biennial”.
in the matter preceding paragraph (1) by—
striking “April 15 of each year” and inserting “May 15 of each odd-numbered year”;
striking “the fiscal year beginning on October 1 of such year” the first place it appears and inserting “the biennium beginning on October 1 of such year”; and
striking “the fiscal year beginning on October 1 of such year” the second place it appears and inserting “each fiscal year in such period”;
in paragraph (6)—
by striking “For purposes” and inserting “for purposes”; and
by striking “for the fiscal year” and inserting “for each fiscal year in the biennium”; and
in paragraph (7)—
by striking “For purposes” and inserting “for purposes”; and
by striking “for the fiscal year” and inserting “for each fiscal year in the biennium”.
Additional matters— Section 301(b)(3) of such Act (2 U.S.C. 632(b)(3)) is amended by striking “for such fiscal year” and inserting “for either fiscal year in such biennium”.
Views of other committees— Section 301(d) of such Act (2 U.S.C. 632(d)) is amended by inserting “(or, if applicable, as provided by section 300(b))” after “United States Code”.
striking “fiscal year” and inserting “biennium”; and
inserting after the second sentence the following: “On or before April 1 of each odd-numbered year (or, if applicable, as provided by section 300(b)), the Committee on the Budget of each House shall report to its House the concurrent resolution on the budget referred to in subsection (a) for the biennium beginning on October 1 of that year.”.
Goals for reducing unemployment— Section 301(f) of such Act (2 U.S.C. 632(f)) is amended by striking “fiscal year” each place it appears and inserting “biennium”.
Economic assumptions— Section 301(g)(1) of such Act (2 U.S.C. 632(g)(1)) is amended by striking “for a fiscal year” and inserting “for a biennium”.
Table of contents— The table of contents set forth in section 1(b) of such Act is amended by striking the item relating to section 301 and inserting the following:
in subsection (a)—
in paragraph (1), by—
striking “for the first fiscal year of the resolution,” and inserting “for each fiscal year in the biennium,”;
striking “for that period of fiscal years” and inserting “for all fiscal years covered by the resolution”; and
striking “for the fiscal year of that resolution” and inserting “for each fiscal year in the biennium”; and
in paragraph (5)(A), by striking “April 15” and inserting “May 15 or June 1 (under section 300(b))”;
in subsection (b), by striking “budget year” and inserting “biennium”;
in subsection (c) by striking “for a fiscal year” each place it appears and inserting “for each fiscal year in the biennium”;
in subsection (f)(1), by striking “for a fiscal year” and inserting “for a biennium”;
in subsection (f)(1), by striking “the first fiscal year” and inserting “each fiscal year of the biennium”;
in subsection (f)(2)(A), by—
striking “the first fiscal year” and inserting “each fiscal year of the biennium”; and
striking “the total of fiscal years” and inserting “the total of all fiscal years covered by the resolution”; and
in subsection (g)(1)(A), by striking “April” and inserting “May”.
Section 303 Point of Order—
striking “for a fiscal year” and inserting “for a biennium”;
striking “the first fiscal year” and inserting “each fiscal year of the biennium”; and
striking “that fiscal year” each place it appears and inserting “that biennium”.
in subparagraph (A), by striking “the budget year” and inserting “the biennium”; and
in subparagraph (B), by striking “the fiscal year” and inserting “the biennium”.
striking “fiscal year” and inserting “biennium”; and
striking “that year” and inserting “each fiscal year of that biennium”.
Permissible Revisions of Concurrent Resolutions on the Budget— Section 304 of such Act (2 U.S.C. 635) is amended—
by striking “fiscal year” the first two places it appears and inserting “biennium”; and
by striking “for such fiscal year” and inserting “for such biennium”.
Procedures for Consideration of Budget Resolutions— Section 305 of such Act (2 U.S.C. 636) is amended—
in subsection (a)(3), by striking “fiscal year” and inserting “biennium”; and
in subsection (b)(3), by striking “fiscal year” and inserting “biennium”.
Completion of House Action on Appropriation Bills— Section 307 of such Act (2 U.S.C. 638) is amended—
by striking “each year” and inserting “each odd-numbered year”;
by striking “annual” and inserting “biennial”;
by striking “fiscal year” and inserting “biennium”; and
by striking “that year” and inserting “that odd-numbered year”.
Completion of Action on Regular Appropriation Bills— Section 309 of such Act (2 U.S.C. 640) is amended—
by inserting “of any odd-numbered year” after “July”;
by striking “annual” and inserting “biennial”;
by striking “fiscal year” and inserting “biennium”; and
by striking “such year” and inserting “such odd-numbered year”.
in the matter preceding paragraph (1), by striking “any fiscal year” and inserting “any biennium”; and
in paragraph (1) by striking “such fiscal year” each place it appears and inserting “any fiscal year covered by such resolution”.
Section 311 Point of Order—
by striking “for a fiscal year” and inserting “for a biennium”;
by striking “the first fiscal year” each place it appears and inserting “either fiscal year of the biennium”; and
by striking “that first fiscal year” and inserting “each fiscal year in the biennium”.
in subparagraph (A), by striking “for the first fiscal year” and inserting “for either fiscal year of the biennium”; and
in subparagraph (B)—
by striking “that first fiscal year” the first place it appears and inserting “each fiscal year in the biennium”; and
by striking “that first fiscal year and the ensuing fiscal years” and inserting “all fiscal years”.
striking “for the first fiscal year” and inserting “each fiscal year in the biennium”; and
striking “that fiscal year and the ensuing fiscal years” and inserting “all fiscal years”.
by striking “for a fiscal year” and inserting “for a biennium”;
in paragraph (1), by striking “the first fiscal year” and inserting “either fiscal year in the biennium”;
in paragraph (2), by striking “that fiscal year” and inserting “either fiscal year in the biennium”; and
in the matter following paragraph (2), by striking “that fiscal year” and inserting “the applicable fiscal year”.
4. Amendments to title 31, United States Code
Definition— Section 1101 of title 31, United States Code, is amended by adding at the end the following:
“(3) “biennium” has the meaning given that term in paragraph (12) of section 3 of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622).”
Budget Contents and Submission to the Congress—
Schedule— The matter preceding paragraph (1) in section 1105(a) of title 31, United States Code, is amended to read as follows:
“(a) On or before the first Monday in February of each odd-numbered year (or, if applicable, as provided by section 300(b) of the Congressional Budget Act of 1974), beginning with the One Hundred Fifteenth Congress, the President shall transmit to the Congress, the budget for the biennium beginning on October 1 of such calendar year. The budget of the United States Government transmitted under this subsection shall include a budget message and summary and supporting information. The President shall include in each budget the following:”
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 fiscal years”.
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”.
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”.
Functions and activities— Section 1105(a)(12)(A) of title 31, United States Code, is amended by striking “the fiscal year” and inserting “each fiscal year in the biennium”.
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”.
Allowances for uncontrolled 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”.
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”.
Future years— Section 1105(a)(17) of title 31, United States Code, is amended—
by striking “the fiscal year following the fiscal year” and inserting “each fiscal year in the biennium following the biennium”;
by striking “that following fiscal year” and inserting “each such fiscal year”; and
by striking “fiscal year before the fiscal year” and inserting “biennium before the biennium”.
Prior year outlays— Section 1105(a)(18) of title 31, United States Code, is amended—
by striking “the prior fiscal year” and inserting “each of the 2 most recently completed fiscal years,”;
by striking “for that year” and inserting “with respect to those fiscal years”; and
by striking “in that year” and inserting “in those fiscal years”.
Prior year receipts— Section 1105(a)(19) of title 31, United States Code, is amended—
by striking “the prior fiscal year” and inserting “each of the 2 most recently completed fiscal years”;
by striking “for that year” and inserting “with respect to those fiscal years”; and
by striking “in that year” each place it appears and inserting “in those fiscal years”.
Homeland security— Section 1105(a)(35)(A)(i) of title 31, United States Code, is amended in the matter preceding subclause (I), by striking “the fiscal years for which the budget is submitted” and inserting “each fiscal year in the biennium for which the budget is submitted”.
EESA— Section 1105(a)(36) of title 31, United States Code, is amended in the matter preceding subparagraph (A), by striking “the fiscal year for which the budget is submitted” and inserting “each fiscal year in the biennium for which the budget is submitted”.
Veterans health— Section 1105(a) of title 31, United States Code, is amended in the first paragraph designated as paragraph (37) (relating to medical care accounts of the Veterans Health Administration), by striking “the fiscal year for which the budget is submitted” and inserting “each fiscal year in the biennium for which the budget is submitted”.
Technical amendment— Section 1105(a) of title 31, United States Code, is amended by redesignating the second paragraph designated as paragraph (37) (relating to plans and reports identified for elimination or consolidation) as paragraph (39).
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”.
Recommendations To Meet Estimated Deficiencies— Section 1105(c) of title 31, United States Code, is amended—
by striking “the fiscal year for” the first place it appears and inserting “each fiscal year in the biennium for”;
by striking “the fiscal year for” the second place it appears and inserting “each fiscal year of the biennium, as the case may be, for”; and
by striking “for that year” and inserting “for each fiscal year of the biennium”.
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”.
Supplemental Budget Estimates and Changes—
In general— Section 1106(a) of title 31, United States Code, is amended—
in the matter preceding paragraph (1), by—
inserting after “Before July 16 of each year” the following: “and February 15 of each even-numbered year”; and
striking “fiscal year” and inserting “biennium”;
in paragraph (1), by striking “that fiscal year” and inserting “each fiscal year in such biennium”;
in paragraph (2), by striking “fiscal year” and inserting “biennium”; and
in paragraph (3), by striking “fiscal year” and inserting “biennium”.
Changes— Section 1106(b) of title 31, United States Code, is amended by—
inserting after “Before July 16 of each year” the following: “and February 15 of each even-numbered year”;
striking “the fiscal year” and inserting “each fiscal year in the biennium”; and
striking “submitted before July 16” and inserting “required by this subsection”.
Current Programs and Activities Estimates—
In general— Section 1109(a) of title 31, United States Code, is amended—
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
by striking “the following fiscal year” and inserting “each fiscal year of such period”.
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 (or, if applicable, as provided by section 300(b) of the Congressional Budget Act of 1974)”.
Year-Ahead Requests for Authorizing Legislation— Section 1110 of title 31, United States Code, is amended by—
striking “May 16” and inserting “March 31”; and
striking “year before the year in which the fiscal year begins” and inserting “calendar year preceding the calendar year in which the biennium begins”.
5. Two-year appropriations; title and style of appropriations Acts
Section 105 of title 1, United States Code, is amended to read as follows:
“105. Title and style of appropriations Acts
“(a) The style and title of all Acts making appropriations for the support of the Government shall be as follows: “An Act making appropriations (here insert the object) for each fiscal year in the biennium of fiscal years (here insert the fiscal years of the biennium).”.
“(b) All Acts making regular appropriations for the support of the Government shall be enacted for a biennium and shall specify the amount of appropriations provided for each fiscal year in such period.
“(c) For purposes of this section, the term biennium has the same meaning as in section 3(12) of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622(12)).”
6. Multiyear authorizations
In General— Title III of the Congressional Budget Act of 1974 is amended by adding at the end the following:
“316. Authorizations of appropriations
“(a) Point of Order—It shall not be in order in the House of Representatives or the Senate to consider—
“(1) any bill, joint resolution, amendment, motion, or conference report that authorizes appropriations for a period of less than 2 fiscal years, unless the program, project, or activity for which the appropriations are authorized will require no further appropriations and will be completed or terminated after the appropriations have been expended; and
“(2) in any odd-numbered year, any authorization or revenue bill or joint resolution until Congress completes action on the biennial budget resolution, all regular biennial appropriations bills, and all reconciliation bills.
“(b) Applicability—In the Senate, subsection (a) shall not apply to—
“(1) any measure that is privileged for consideration pursuant to a rule or statute;
“(2) any matter considered in Executive Session; or
“(3) an appropriations measure or reconciliation bill.”
Amendment to Table of Contents— The table of contents 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:
7. Government plans on a biennial basis
Managerial Accountability and Flexibility— Section 9703 of title 31, United States Code, relating to managerial accountability, is amended—
in subsection (a)—
in the first sentence by striking “annual”; and
by striking “section 1105(a)(29)” and inserting “section 1105(a)(28)”; and
in subsection (e)—
in the first sentence by striking “one or”;
in the second sentence by striking “a subsequent year” and inserting “a subsequent 2-year period”; and
in the third sentence by striking “three” and inserting “4”.
Pilot Projects for Performance Budgeting— Section 1119 of title 31, United States Code, is amended—
in subsection (d)(1), by striking “annual” and inserting “biennial”; and
in subsection (e), by striking “annual” and inserting “biennial”.
Strategic Plans— Section 2802 of title 39, United States Code, is amended—
in subsection (a), by striking “September 30, 1997” and inserting “September 30, 2016”;
in subsection (b)—
by striking “five years forward” and inserting “6 years forward”; and
by striking “at least every three years” and inserting “at least every 4 years”; and
in subsection (c)—
by striking “section” the second place it appears and inserting “section, including a strategic plan submitted by September 30, 2016 meeting the requirements of subsection (a)”.
Performance Plans— Section 2803(a) of title 39, United States Code, is amended—
in the matter before paragraph (1), by striking “an annual” and inserting “a biennial”;
in paragraph (1), by inserting after “program activity” the following: “for each years 1 and 2 of the biennial plan”;
in paragraph (5), by striking “and” after the semicolon;
in paragraph (6), by striking the period and inserting “; and”; and
by adding after paragraph (6) the following:
“(7) cover a 2-year period beginning with the first fiscal year of the next biennial budget cycle.”
Committee Views of Plans and Reports— Section 301(d) of the Congressional Budget Act (2 U.S.C. 632(d)) is amended by adding at the end “Each committee of the Senate or the House of Representatives shall review the strategic plans, performance plans, and performance reports, required under section 306 of title 5, United States Code, and sections 1115 and 1116 of title 31, United States Code, of all agencies under the jurisdiction of the committee. Each committee may provide its views on such plans or reports to the Committee on the Budget of the applicable House.”.
Effective Date—
In general— The amendments made by this section shall take effect on March 1, 2016.
Agency actions— Effective on and after the date of enactment of this Act, each agency shall take such actions as necessary to prepare and submit any plan or report in accordance with the amendments made by this Act.
8. Biennial appropriations bills
In General— Title III of the Congressional Budget Act of 1974 (2 U.S.C. 631 et seq.), as amended by section 6(a), is amended by adding at the end the following:
“317. Consideration of biennial appropriations bills
“It shall not be in order in the House of Representatives or the Senate in any odd-numbered year to consider any regular bill providing new budget authority or a limitation on obligations under the jurisdiction of any of the subcommittees of the Committees on Appropriations for only the first fiscal year of a biennium, unless the program, project, or activity for which the new budget authority or obligation limitation is provided will require no additional authority beyond 1 year and will be completed or terminated after the amount provided has been expended.”
Amendment to Table of Contents— The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 is amended by inserting after the item relating to section 316, as added by section 6(b) the following:
9. Report on two-year fiscal period
Not later than 180 days after the date of enactment of this Act, the Director of the Office of Management and Budget shall—
determine the impact and feasibility of changing the definition of a fiscal year and the budget process based on that definition to a 2-year fiscal period with a biennial budget process based on the 2-year period; and
report the findings of the study to the Committee on the Budget of the House of Representatives and the Committee on the Budget of Senate.
10. Effective date
Except as provided in section 7, this Act and the amendments made by this Act shall take effect on January 1, 2016, and shall apply to budget resolutions and appropriations for the biennium beginning with fiscal year 2017.