Section 1 Short title
This Act may be cited as the “Comprehensive Congressional Budget Act of 2024”.
Comprehensive Congressional Budget Act of 2024
A BILL
To establish comprehensive, annual congressional budgeting.
Sec. 2 Findings
Congress finds the following:
Federal deficits and debt are projected to keep growing at unsustainable rates.
Congress does not consider a comprehensive budget with all spending and revenue at the level of spending accounts and revenue line items.
The number of Federal spending accounts has grown from 1,734 in March 2009 to 2,004 in May 2022.
The annual Congressional budget cycle separates appropriations legislation from the management of direct spending and revenue policies.
Annual appropriations advance each year, but they have declined from 50 percent of Federal spending in 1974 to less than 33 percent. The decline is expected to continue.
Congress has not enacted all appropriations bills prior to the start of the fiscal year since 1996 for fiscal year 1997.
Members have little opportunity to offer substantive amendments on budget and appropriations legislation during floor consideration.
Programs outside of the annual appropriations bills account for almost all projected spending growth compared to the economy.
Most committees of Congress and the Members who serve on them have little direct involvement with shaping the fiscal priorities of the Federal Government on an ongoing basis.
Authorizing committees haven’t enacted updated authorizations for $461,000,000,000 of appropriations for fiscal year 2022.
Major trust funds face depletion within 15 years including the Social Security Old-Age and Survivors Insurance Trust Fund, the Medicare Hospital Insurance Trust Fund, and the Highway Trust Fund for highway and transit programs.
Direct spending and revenue policies lack a regular, comprehensive review around which Members of Congress can anticipate developing proposals and building coalitions.
Reconciliation is an irregular, complicated tool to manage direct spending and revenue policies, and it tends to increase deficits and debt.
By contrast, the President’s budget proposal provides a comprehensive account of Federal spending and revenue along with the legislative proposals of the President.
An incomplete and divided congressional budget process may weaken Congress, its power of the purse, its oversight powers, and its other authorities against an executive branch with a unified budget.
Fourteen States complete their annual or biennial budget cycle with a single bill: Colorado, Connecticut, Florida, Georgia, Hawaii, Indiana, Maryland, Massachusetts, New Jersey, North Carolina, Rhode Island, Tennessee, Virginia, and Wisconsin. Another 16 States enact 5 or fewer budget and appropriations bills per cycle: Illinois, New Hampshire, New Mexico, South Carolina, California, Kansas, Washington, Texas, Alaska, Delaware, Ohio, Vermont, Oklahoma, Kentucky, Nevada, and New York.
A comprehensive budget with all Federal spending and revenue with contributions from many committees can—
enable more effective budget management;
involve more Members of Congress;
help set priorities and control deficits and debt;
improve program coordination;
add value for the people of the United States; and
make Congress become a more effective legislative body.
Sec. 3 Definitions
In general— Section 3 of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622) is amended—
by redesignating paragraphs (6) through (11) as paragraphs (7) through (12), respectively; and
by inserting after paragraph (5) the following:
“(6) The term annual budget Act means an Act itemizing all Federal budget authority and revenue through the contributions of the appropriations committees and each other committee receiving allocations under section 302(a).”
Conforming amendments—
Section 314(g)(1)(A) of the Congressional Budget Act of 1974 (2 U.S.C. 645(g)(1)(A)) is amended by striking “an appropriation measure” and inserting “an annual budget Act”.
Section 401(a) of the Congressional Budget Act of 1974 (2 U.S.C. 651) is amended, in the matter following paragraph (3) by striking “appropriation Acts” and inserting “an annual budget Act”.
Section 3(15)(A)(ii) of the Lobbying Disclosure Act of 1995 (2 U.S.C. 1602(15)) is amended by striking “section 3(8) of the Congressional Budget and Impoundment Control Act of 1974” and inserting “section 3 of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622)”.
Section 2009a(3) of title 39, United States Code, is amended by striking “deficit under section 3(6) of the Congressional Budget and Impoundment Control Act of 1974” and inserting “deficit, as defined under section 3 of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622)”.
Sec. 4 Timetable
Section 300 of the Congressional Budget Act of 1974 (2 U.S.C. 631) is amended to read as follows:
“300. Timetable
“The timetable with respect to the congressional budget process for any fiscal year is as follows:”
Sec. 5 Annual adoption of concurrent resolution on the budget
in subsection (a), in the matter following paragraph (7)—
by striking “resolution shall not” and inserting “resolution shall”;
by striking “or the related” and inserting “and the related”;
by striking “subsection or” and inserting “subsection and”; and
by adding at the end the following: “If a concurrent resolution on the budget is not adopted by April 15, the Chair of the Committee on the Budget of each House of Congress shall report to their House baseline levels for all amounts required under this subsection within 3 legislative days, and such baseline levels shall apply in such House as though they were included in a concurrent resolution on the budget.”;
in subsection (b)(3), by striking “on any reconciliation bill” and all that follows and inserting “on the annual budget Act;”;
in subsection (d), in the first sentence, by striking “committee.” and inserting “committee, including baseline spending projections by budget account of policies within the jurisdiction of such committee and a description of any changes such committee expects to recommend for the annual budget Act. The Committee on Finance of the Senate and the Committee on Ways and Means of the House of Representatives shall each submit to the Committee on the Budget of its House a revenue statement, a tax expenditure budget, and a description of any changes such committee expects to recommend for the annual budget Act.”; and
in subsection (e)(2)—
in subparagraph (E), by striking “and” at the end;
in subparagraph (F), by striking the period at the end and inserting “: and”; and
by adding at the end the following:
“(G) a line-item budget that compiles baseline spending and revenue projections for the budget year.”
Conforming amendment— Section 302(a)(5)(A) of the Congressional Budget Act of 1974 (2 U.S.C. 633(a)(5)(A)) is amended by striking “the discretionary spending levels” and all that follows and inserting “the baseline levels reported under section 301(a) for the budget year.”.
Sec. 6 Committee allocations
by redesignating subsections (d) through (g) as subsections (e) through (h), respectively;
by inserting after subsection (c) the following:
“(d) Committees submit line items and proposals
“(1) In general—Each committee to which an allocation is made under this section other than the Committee on Appropriations of a House shall—
“(A) compile—
“(i) direct spending and revenue projections for budget accounts within its jurisdiction, which shall include the effect of any recommended changes described in clause (ii); and
“(ii) legislation to effect any recommended changes to policies within its jurisdiction; and
“(B) submit to the Committee on Appropriations of its House, for inclusion in the annual budget Act, direct spending and revenue line items and legislation to effect such recommended changes.
“(2) Legislative changes—Recommended changes described in paragraph (1)(A)(ii) should produce a change in outlays or revenues, including changes in outlays and revenues brought about by changes in the terms and conditions under which outlays are made or revenue are required to be collected.
“(3) Inconsistent submissions—If any submission under this subsection is inconsistent with the requirements of the concurrent resolution on the budget, as determined by the applicable Committee on the Budget, the Committee on Appropriations shall return the submission to the originating committee.”
in subsection (h), as so redesignated—
in paragraph (1)(A), in the matter preceding clause (i), by striking “(f)(1)” and inserting “(g)(1)”; and
in paragraph (2)(A), by striking “(f)(1)” and inserting “(g)(1)”.
Conforming amendment— Section 904 of the Congressional Budget Act of 1974 (2 U.S.C. 621 note) is amended—
in subsection (c)(2), by striking “302(f)” and inserting “302(g)”; and
in subsection (d)(3), by striking “302(f)” and inserting “302(g)”.
Sec. 7 Concurrent resolution on the budget must be adopted before budget-related legislation is considered
Section 303 of the Congressional Budget Act of 1974 (2 U.S.C. 634) is amended—
in subsection (b)(2), by striking “any general appropriation bill or amendment thereto” and inserting “the annual budget Act or amendment thereto”; and
in subsection (c)(1), by striking “any appropriation bill or joint resolution, amendment or motion thereto, or conference report thereon” and inserting “the annual budget Act, any amendment or motion thereto, or any conference report thereon”.
Sec. 8 House committee action on the annual budget Act to be completed by June 10
In general— Section 307 of the Congressional Budget Act of 1974 (2 U.S.C. 638) is amended to read as follows:
“307. House committee action on the annual budget Act to be completed by June 10
“(a) On or before June 10 of each year, the Committee on Appropriations of the House of Representatives shall report the annual budget Act—
“(1) providing new budget authority under the jurisdiction of all of its subcommittees for the fiscal year which begins on October 1 of that year; and
“(2) which shall include, without substantive revision, all line items and any recommended changes submitted by each committee of the House with jurisdiction over direct spending or revenue policies.
“(b) If 1 or more committees of a House of Congress fails to submit line items as described in subsection (a)(2), the Committee on Appropriations of the House shall include baseline line items provided by the Committee on the Budget with respect to matters within the jurisdiction of each committee that failed to submit line items”
Conforming amendment— The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 (Public Law 93–344; 88 Stat. 297) is amended by striking the item relating to section 307 and inserting the following:
Sec. 9 House approval of annual budget Act
In general— Section 309 of the Congressional Budget Act of 1974 (2 U.S.C. 640) is amended to read as follows:
“309. House approval of annual budget Act
“(a) 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 month of July until the House of Representatives has approved the annual budget Act—
“(1) providing new budget authority under the jurisdiction of all the subcommittees of the Committee on Appropriations for the fiscal year beginning on October 1 of such year; and
“(2) which shall include—
“(A) all line-item levels;
“(B) any recommended changes submitted by each committee of the House of Representatives with jurisdiction over direct spending or revenue policies; and
“(C) any further changes agreed to during consideration on the floor of the House of Representatives.
“(b) For purposes of this section, the chair of the Committee on Appropriations of the House of Representatives shall periodically advise the Speaker as to changes in jurisdiction among its various subcommittees.”
Conforming amendment— The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 (Public Law 93–344; 88 Stat. 297) is amended by striking the item relating to section 309 and inserting the following:
Sec. 10 Repeal of reconciliation
In general— Title III of the Congressional Budget Act of 1974 (2 U.S.C. 631 et seq.) is amended by striking sections 310 and 313 (2 U.S.C. 641, 644).
Conforming amendments—
Section 301(b) of the Congressional Budget Act of 1974 (2 U.S.C. 632(b)), as amended by section 5, is amended—
by striking paragraph (2); and
by redesignating paragraphs (3) through (9) as paragraphs (2) through (8), respectively.
Section 305(c)(1) of the Congressional Budget Act of 1974 (2 U.S.C. 636(c)(1)) is amended by striking “(or a reconciliation bill or resolution)”.
Section 314(e)(4) of the Congressional Budget Act of 1974 (2 U.S.C. 645(e)(4)) is amended to read as follows:
“(4) Form of the point of order—Notwithstanding any other law or rule of the Senate, it shall be in order for a Senator to raise a single point of order against several provisions of a bill, resolution, amendment, motion, amendment between the Houses, or conference report making emergency designations. 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 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. 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.”
Section 904 of the Congressional Budget Act of 1974 (2 U.S.C. 621 note) is amended—
in subsection (c)—
in paragraph (1), by striking “310(d)(2), 313,”; and
in paragraph (2), by striking “310(g)”; and
in subsection (d)—
in paragraph (1), by striking “reconciliation bill,”;
in paragraph (2), by striking “310(d)(2), 313,”; and
in paragraph (3), by striking “310(g)”.
The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 is amended by striking the items relating to sections 310 and 313.
The Balanced Budget and Emergency Deficit Control Act of 1985 (2 U.S.C. 900 et seq.) is amended—
in section 258(b)(2) (2 U.S.C. 907a(b)(2)), by striking “, 310(d),” and inserting “and”; and
in section 258C (2 U.S.C. 907d)—
in subsection (a)(2), in the third sentence, by striking “of the type referred to in section 310(a) of the Congressional Budget Act of 1974”; and
in subsection (b)—
by striking paragraph (1) and inserting the following:
“(1) In general—Except as provided in paragraph (2), in the Senate regular procedures for consideration of legislation shall apply to the consideration of resolutions, and reconciliation bills and reconciliation resolutions reported under subsection (a) and conference reports thereon.”
by striking paragraph (3) and inserting the following:
“(3) Limitation on amendments—No amendment to a reconciliation bill or reconciliation resolution reported under subsection (a) shall increase net deficits or reduce net surpluses in the 5-year period or the 10-year period following the current year or any of the 10-year periods following the 10-year period immediately following the current year.”
Section 4(g)(3)(D) of the Statutory Pay-As-You-Go Act of 2010 (2 U.S.C. 933(g)(3)(D)) is amended by striking “section 313 (e)” and inserting “section 314(e)(4)”.
Sec. 11 Determinations and points of order
Section 312(f) of the Congressional Budget Act of 1974 (2 U.S.C. 643(f)) is amended by inserting “commit or” before “recommit”.
Sec. 12 Analysis by Congressional Budget Office
Section 402 of the Congressional Budget Act of 1974 (2 U.S.C. 653) is amended, in the matter preceding paragraph (1), by striking “(except the Committee on Appropriations of each House)” and inserting “and for each submission by a committee of a House of Congress to the Committee on Appropriations of its House of recommended direct spending or revenue changes to be included under section 302(d) in an annual budget Act”.
Sec. 13 Off-budget agencies, programs, and activities
Section 405(a) of the Congressional Budget Act of 1974 (2 U.S.C. 655(a)) is amended by striking “immediately prior to the date of enactment of this section, not including activities of the Federal Old-Age and Survivors Insurance and Federal Disability Insurance Trust Funds,”.
Sec. 14 Identification of limited tax benefits
Section 1027 of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 691f) is amended by striking “revenue or reconciliation bill or joint resolution” each place it appears and inserting “revenue bill or annual budget Act”.