[Congressional Bills 119th Congress]
[From the U.S. Government Publishing Office]
[S. 2090 Introduced in Senate (IS)]
<DOC>
119th CONGRESS
1st Session
S. 2090
To improve the budget process.
_______________________________________________________________________
IN THE SENATE OF THE UNITED STATES
June 17, 2025
Mr. Marshall introduced the following bill; which was read twice and
referred to the Committee on the Budget
_______________________________________________________________________
A BILL
To improve the budget process.
Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Budget Reform Act of 2025''.
SEC. 2. TABLE OF CONTENTS.
The table of contents for this Act is as follows:
Sec. 1. Short title.
Sec. 2. Table of contents.
TITLE I--CONGRESSIONAL BUDGET OFFICE REFORMS
Sec. 101. CBO show your work.
TITLE II--ZERO-BASED BUDGETING
Sec. 201. Zero-based budgeting.
TITLE III--BIENNIAL BUDGET TIMETABLE REFORMS
Subtitle A--Biennial Budgeting and Appropriations
Sec. 301. Revision of timetable.
Sec. 302. Amendments to the Congressional Budget and Impoundment
Control Act of 1974.
Sec. 303. Amendments to title 31, United States Code.
Sec. 304. Two-year appropriations; title and style of appropriations
Acts.
Sec. 305. Multiyear authorizations.
Sec. 306. Government plans on a biennial basis.
Sec. 307. Biennial appropriations bills.
Subtitle B--Compliance
Sec. 321. Limitation on use of Federal funds for political employee
official travel if President's budget is
late.
Sec. 322. Limitation on use of Federal funds for presidential travel
expenses if President's budget is late.
Sec. 323. Submission of the National Security Strategy and the budget
of the President before the President may
address a joint session of Congress.
Sec. 324. No budget, no travel.
Subtitle C--Effective Date
Sec. 341. Effective date.
TITLE IV--SENATE RULES REFORMS
Sec. 401. Setting the threshold to waive points of order at two-thirds.
Sec. 402. Surgical strike point of order relating to legislation
dealing with the congressional budget.
TITLE V--OTHER MATTERS
Sec. 501. Changes in the baseline.
TITLE I--CONGRESSIONAL BUDGET OFFICE REFORMS
SEC. 101. CBO SHOW YOUR WORK.
(a) Publication of Congressional Budget Office Models.--Section 402
of the Congressional Budget Act of 1974 (2 U.S.C. 653) is amended--
(1) by striking ``The Director'' and inserting the
following:
``(a) In General.--The Director'';
(2) in the undesignated matter following subsection (a)(3),
as so designated, by striking ``The estimates'' and inserting
the following:
``(b) Inclusion in Reports.--The estimates''; and
(3) by adding at the end the following:
``(c) Publication of Models and Data.--The Director of the
Congressional Budget Office shall make available to Members of Congress
and make publicly available on the website of the Congressional Budget
Office--
``(1) each fiscal model, policy model, and data preparation
routine used by the Congressional Budget Office in estimating
the costs and other fiscal, social, or economic effects of
legislation, including estimates prepared under subsection (a);
``(2) any update of a model or routine described in
paragraph (1);
``(3) subject to paragraph (4), for each estimate of the
costs and other fiscal effects of legislation, including
estimates prepared under subsection (a), the data, programs,
models, assumptions, and other details of the computations used
by the Congressional Budget Office in preparing the estimate,
in a manner sufficient to permit replication by individuals not
employed by the Congressional Budget Office; and
``(4) for any data that is required not to be disclosed by
the Congressional Budget Office--
``(A) a complete list of all data variables for
such data;
``(B) descriptive statistics for all data variables
for such data (including averages, standard deviations,
number of observations, and correlations to other
variables), to the extent that the descriptive
statistics do not violate the rule against disclosure;
``(C) a reference to the statute requiring that the
data not be disclosed; and
``(D) information regarding how to contact the
individual or entity who has unrestricted access to the
data.''.
(b) Effective Date.--The amendments made by subsection (a) shall
apply on and after the date that is 6 months after the date of
enactment of this Act.
TITLE II--ZERO-BASED BUDGETING
SEC. 201. ZERO-BASED BUDGETING.
(a) Interim Period.--Section 1105 of title 31, United States Code,
is amended by adding at the end the following:
``(j)(1) Except as provided in paragraph (2), the President shall
submit with materials related to each budget transmitted under
subsection (a) on or after the date of enactment of this subsection a
budget for each department and agency that 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 described in
subparagraph (A).
``(C) For each activity described in subparagraph (A)--
``(i) an examination of the objectives, operations,
and costs of the activity;
``(ii) three alternative funding levels for the
budget year, not fewer than 2 of which shall be below
the funding level for the current fiscal year;
``(iii) a summary of the priorities that would be
accomplished within each level described in clause
(ii); and
``(iv) the additional increments of value that
would be added by the higher funding levels described
in clause (ii).
``(D) For each activity described in subparagraph (A), 1 or
more measures of cost efficiency and effectiveness.
``(2) The materials submitted under paragraph (1) shall not include
information for the old-age, survivors, and disability insurance
benefits program under title II of the Social Security Act (42 U.S.C.
401 et seq.), the Medicare program under title XVIII of the Social
Security Act (42 U.S.C. 1395 et seq.), or the Medicaid program under
title XIX of the Social Security Act (42 U.S.C. 1396 et seq.).
``(3) As soon as practicable after the date of enactment of this
subsection, the Director of the Office of Management and Budget shall
publish guidelines to carry out this subsection, which 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.''.
(b) Biennial Zero-Based Budgeting.--
(1) In general.--Effective on January 1, 2027, subsection
(j)(1) of section 1105 of title 31, United States Code, is
amended by striking ``Except as provided'' and all that follows
and inserting the following: ``Except as provided in paragraph
(2), the President shall submit with materials related to each
budget transmitted under subsection (a) on or after December
31, 2026, a budget for each department and agency that contains
the following information:
``(A) A description of each activity for which the
department or agency receives an appropriation in the either
fiscal year of the current biennium or for which the department
or agency requests an appropriation for either fiscal year in
the next biennium.
``(B) The legal basis for each activity described in
subparagraph (A).
``(C) For each activity described in subparagraph (A)--
``(i) an examination of the objectives, operations,
and costs of the activity;
``(ii) three alternative funding levels for each
fiscal year in the next biennium, not fewer than 2 of
which shall be below the funding level for the average
of the amount for each fiscal year during the current
biennium;
``(iii) a summary of the priorities that would be
accomplished within each level described in clause
(ii); and
``(iv) the additional increments of value that
would be added by the higher funding levels described
in clause (ii).
``(D) For each activity described in subparagraph (A), 1 or
more measures of cost efficiency and effectiveness.''.
(2) Applicability.--The amendment made by this subsection
shall apply to budget recommendations for the biennium
beginning with fiscal year 2028, and each biennium thereafter.
TITLE III--BIENNIAL BUDGET TIMETABLE REFORMS
Subtitle A--Biennial Budgeting and Appropriations
SEC. 301. REVISION OF TIMETABLE.
(a) In General.--Section 300 of the Congressional Budget Act of
1974 (2 U.S.C. 631) is amended to read as follows:
``timetable
``Sec. 300. (a) In General.--Except as provided by subsection (b),
the timetable with respect to the congressional budget process for any
Congress is as follows:
``First Session
On or before: Action to be completed:
First day of session.................... President submits budget recommendations.
One week after submission of President's Congressional Budget Office submits report to the Committee on the
budget recommendations. Budget of the House of Representatives and the Committee on the
Budget of the Senate.
February 1.............................. Committees submit views and estimates to the Committee on the Budget
of the House of Representatives and the Committee on the Budget of
the Senate.
February 15............................. Committee on the Budget of the Senate reports concurrent resolution on
the biennial budget.
March 15................................ Congress completes action on concurrent resolution on the biennial
budget.
March 16................................ Biennial appropriation bills may be considered in the House.
April 10................................ House Appropriations Committee reports last biennial appropriation
bill.
April 30................................ House completes action on biennial appropriation bills.
June 1.................................. Senate completes action on biennial appropriation bills.
October 1............................... Biennium begins.
``Second Session
On or before: Action to be completed:
First day of session.................... President submits budget review.
One week after submission of budget Congressional Budget Office submits report to the Committee on the
review. Budget of the House of Representatives and the Committee on the
Budget of the Senate.
June 1.................................. Congress completes action on bills and resolutions authorizing new
budget authority for the succeeding biennium.
``(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
for the first session in subsection (a):
``First Session
On or before: Action to be completed:
First Monday in February................ President submits budget recommendations.
February 15............................. Congressional Budget Office submits report to the Committee on the
Budget of the House of Representatives and the Committee on the
Budget of the Senate.
March 15................................ Committees submit views and estimates to the Committee on the Budget
of the House of Representatives and the Committee on the Budget of
the Senate.
April 1................................. Committee on the Budget of the Senate reports concurrent resolution on
the biennial budget.
April 15................................ Congress completes action on concurrent resolution on the biennial
budget.
April 16................................ Biennial appropriation bills may be considered in the House of
Representatives.
May 10.................................. Committee on Appropriations of the House of Representatives reports
last appropriation bill.
May 30.................................. House of Representatives completes action on biennial appropriation
bills.
July 1.................................. Senate completes action on biennial appropriation bills.
October 1............................... Biennium begins.''.
(b) Conforming Amendments.--
(1) Section 202(e)(1) of the Congressional Budget Act of
1974 (2 U.S.C. 602(e)(1)) is amended by striking ``On or before
February 15'' and inserting ``Not later than January 15 (or, if
applicable, under section 300(b), February 15)''.
SEC. 302. AMENDMENTS TO THE CONGRESSIONAL BUDGET AND IMPOUNDMENT
CONTROL ACT OF 1974.
(a) 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''.
(b) Definitions.--
(1) 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''.
(2) 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.''.
(c) Biennial Concurrent Resolution on the Budget.--
(1) Section heading.--The section heading of section 301 of
such Act (2 U.S.C. 632) is amended by striking ``annual'' and
inserting ``biennial''.
(2) Contents of resolution.--Section 301(a) of such Act (2
U.S.C. 632(a)) is amended--
(A) in the matter preceding paragraph (1) by--
(i) striking ``April 15 of each year'' and
inserting ``March 15 (or, if applicable under
section 300(b), April 15) of each odd-numbered
year'';
(ii) 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
(iii) striking ``the fiscal year beginning
on October 1 of such year'' the second place it
appears and inserting ``each fiscal year in
such period'';
(B) in paragraph (6), by striking ``for the fiscal
year'' and inserting ``for each fiscal year in the
biennium''; and
(C) in paragraph (7), by striking ``for the fiscal
year'' and inserting ``for each fiscal year in the
biennium''.
(3) 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''.
(4) Views of other committees.--Section 301(d) of such Act
(2 U.S.C. 632(d)) is amended by striking ``Within 6 weeks after
the President submits a budget under section 1105(a) of title
31, United States Code'' and inserting ``Not later than
February 1 (or, if applicable under section 300(b), March 15)
of each odd-numbered year''.
(5) Hearings.--Section 301(e)(1) of such Act (2 U.S.C.
632(e)(1)) is amended by--
(A) striking ``fiscal year'' and inserting
``biennium''; and
(B) inserting after the second sentence the
following: ``On or before February 15 (or, if
applicable under section 300(b), March 15) 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 October 1 of that
year.''.
(6) 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''.
(7) 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''.
(8) 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:
``Sec. 301. Biennial adoption of concurrent resolution on the
budget.''.
(d) Committee Allocations.--Section 302 of such Act (2 U.S.C. 633)
is amended--
(1) in subsection (a)--
(A) in paragraph (1), by--
(i) striking ``for the first fiscal year of
the resolution,'' and inserting ``for each
fiscal year in the biennium,'';
(ii) striking ``for that period of fiscal
years'' and inserting ``for all fiscal years
covered by the resolution''; and
(iii) striking ``for the fiscal year of
that resolution'' and inserting ``for each
fiscal year in the biennium''; and
(B) in paragraph (5)(A), by striking ``April 15''
and inserting ``March 15 (or, if applicable under
section 300(b), April 15) of an odd-numbered year'';
(2) in subsection (b), by striking ``budget year'' and
inserting ``biennium'';
(3) in subsection (c) by striking ``for a fiscal year''
each place it appears and inserting ``for each fiscal year in
the biennium'';
(4) in subsection (f)--
(A) in paragraph (1)--
(i) in the matter preceding subparagraph
(A), by striking ``for a fiscal year'' and
inserting ``for a biennium''; and
(ii) in matter following subparagraph (C),
by striking ``the first fiscal year'' and
inserting ``either fiscal year of the
biennium''; and
(B) in paragraph (2)(A)--
(i) by striking ``the first fiscal year''
and inserting ``each fiscal year of the
biennium''; and
(ii) by striking ``the total of fiscal
years'' and inserting ``the total of all fiscal
years covered by the resolution''; and
(5) in subsection (g)(1)(A), by striking ``April 15'' and
inserting ``March 15 (or, if applicable under section 300(b),
April 15) of an odd-numbered year''.
(e) Section 303 Point of Order.--
(1) In general.--Section 303(a) of such Act (2 U.S.C.
634(a)) is amended by--
(A) striking ``for a fiscal year'' and inserting
``for a biennium'';
(B) striking ``the first fiscal year'' and
inserting ``either fiscal year of the biennium''; and
(C) striking ``that fiscal year'' each place it
appears and inserting ``that biennium''.
(2) Exceptions in the house.--Section 303(b) of such Act (2
U.S.C. 634(b)) is amended--
(A) in paragraph (1)--
(i) in subparagraph (A), by striking ``the
budget year'' and inserting ``the biennium'';
and
(ii) in subparagraph (B), by striking ``the
fiscal year'' and inserting ``the biennium'';
and
(B) in paragraph (2), by striking ``May 15'' and
inserting ``March 16 (or, if applicable under section
300(b), April 16)''.
(3) Application to the senate.--Section 303(c)(1) of such
Act (2 U.S.C. 634(c)(1)) is amended by--
(A) striking ``fiscal year'' and inserting
``biennium''; and
(B) striking ``that year'' and inserting ``each
fiscal year of that biennium''.
(f) Permissible Revisions of Concurrent Resolutions on the
Budget.--Section 304 of such Act (2 U.S.C. 635) is amended--
(1) by striking ``fiscal year'' the first two places it
appears and inserting ``biennium'';
(2) by striking ``for such fiscal year'' and inserting
``for such biennium''; and
(3) by inserting ``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.'' after ``to.''.
(g) Procedures for Consideration of Budget Resolutions.--Section
305 of such Act (2 U.S.C. 636) is amended--
(1) in subsection (a)(3), by striking ``fiscal year'' and
inserting ``biennium''; and
(2) in subsection (b)(3), by striking ``fiscal year'' and
inserting ``biennium''.
(h) Completion of House Committee Action on Appropriation Bills.--
(1) In general.--Section 307 of such Act (2 U.S.C. 638) is
amended--
(A) in the section heading, by striking ``june 10''
and inserting ``april 10'';
(B) by striking ``June 10 of each year'' and
inserting ``April 10 (or, if applicable under section
300(b), May 10) of each odd-numbered year'';
(C) by striking ``annual'' and inserting
``biennial'';
(D) by striking ``fiscal year'' and inserting
``biennium''; and
(E) by striking ``that year'' and inserting ``that
odd-numbered year''.
(2) Conforming amendment.--The table of contents set forth
in section 1(b) of such Act is amended by striking the item
relating to section 307 and inserting the following:
``Sec. 307. House committee action on all appropriation bills to be
completed by April 10.''.
(i) Completion of Action on Regular Appropriation Bills.--Section
309 of such Act (2 U.S.C. 640) is amended--
(1) by inserting ``of any odd-numbered year'' after
``July'';
(2) by striking ``annual'' and inserting ``biennial'';
(3) by striking ``fiscal year'' and inserting ``biennium'';
and
(4) by striking ``such year'' and inserting ``such odd-
numbered year''.
(j) Reconciliation Process.--Section 310(a) of such Act (2 U.S.C.
641(a)) is amended--
(1) in the matter preceding paragraph (1), by striking ``A
concurrent'' and all that follows through ``shall'' and
inserting ``A concurrent resolution on the budget for a
biennium may, for each fiscal year of the biennium''; and
(2) in paragraph (1)--
(A) in subparagraph (A), by striking ``for such
fiscal year'' and inserting ``for each fiscal year of
the biennium'';
(B) in subparagraph (C), by striking ``such fiscal
year'' and inserting ``each fiscal year of the
biennium''; and
(C) in subparagraph (D), by striking ``such fiscal
year'' and inserting ``each fiscal year of the
biennium''.
(k) Section 311 Point of Order.--
(1) In the house.--Section 311(a)(1) of such Act (2 U.S.C.
642(a)(1)) 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 such Act (2 U.S.C.
642(a)(2)) 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
``either 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 such Act
(2 U.S.C. 642(a)(3)) is amended by--
(A) striking ``for the first fiscal year'' and
inserting ``for each fiscal year in the biennium''; and
(B) striking ``that fiscal year and the ensuing
fiscal years'' and inserting ``all fiscal years''.
(l) MDA Point of Order.--Section 312(c) of such Act (2 U.S.C.
643(c)) is amended--
(1) by striking ``for a fiscal year'' and inserting ``for a
biennium'';
(2) in paragraph (1), by striking ``the 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''.
SEC. 303. 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:
``(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).''.
(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 day on which Congress is in session
(or, if applicable under section 300(b) of the Congressional Budget Act
of 1974, the first Monday in February) of each odd-numbered year, 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:''.
(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 fiscal
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) Functions and activities.--Section 1105(a)(12) of title
31, United States Code, is amended--
(A) in subparagraph (A), by striking ``the fiscal
year'' and inserting ``each fiscal year in the
biennium''; and
(B) in subparagraph (B), by striking ``after that
year'' and inserting ``after that 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 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''.
(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) 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 two 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) Prior year receipts.--Section 1105(a)(19) of title 31,
United States Code, is amended--
(A) by striking ``the prior fiscal year'' and
inserting ``each of the two 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'' each place it
appears and inserting ``in those fiscal years''.
(12) 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''.
(13) 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''.
(14) Veterans health.--Section 1105(a)(37) of title 31,
United States Code, is amended 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''.
(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, for''; and
(3) by striking ``for that year'' and inserting ``for each
fiscal year of the biennium''.
(e) 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''.
(f) Preparation of Budget.--Section 1105(f) of title 31, United
States Code, is amended--
(1) by striking ``for a fiscal year'' and inserting ``for a
biennium''; and
(2) by striking ``that and subsequent'' and inserting
``each fiscal year in such biennium and subsequent''.
(g) Budget Justifications.--
(1) Title 31.--Section 1105(i)(1) of title 31, United
States Code, is amended, in the matter preceding subparagraph
(A), by striking ``for each fiscal year'' and inserting ``for
each biennium''.
(2) FFATA.--Section 3(b)(2)(A)(i) of the Federal Funding
Accountability and Transparency Act of 2006 (31 U.S.C. 6101
note) is amended by striking ``annual'' and inserting
``biennial''.
(h) 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) inserting after ``Before July 16 of
each year'' the following: ``and the first day
on which Congress is in session of each even-
numbered 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 ``fiscal year''
and inserting ``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) inserting after ``Before July 16 of each year''
the following: ``and the first day on which Congress is
in session of each even-numbered year'';
(B) striking ``the fiscal year'' and inserting
``each fiscal year in the biennium''; and
(C) striking ``submitted before July 16'' and
inserting ``required by this subsection''.
(i) Current Programs and Activities Estimates.--
(1) In general.--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 biennium''.
(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 one week of the President's
budget submission for each odd-numbered year (or, if applicable
under section 300(b) of the Congressional Budget Act of 1974,
not later than February 15 of an odd-numbered year)''.
(j) Year-Ahead Requests for Authorizing Legislation.--Section 1110
of title 31, United States Code, is amended by--
(1) striking ``May 16'' and inserting ``March 31''; and
(2) striking ``year before the year in which the fiscal
year begins'' and inserting ``calendar year preceding the
calendar year in which the biennium begins''.
SEC. 304. TWO-YEAR APPROPRIATIONS; TITLE AND STYLE OF APPROPRIATIONS
ACTS.
Section 105 of title 1, United States Code, is amended to read as
follows:
``Sec. 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)).''.
SEC. 305. MULTIYEAR AUTHORIZATIONS.
(a) In General.--Title III of the Congressional Budget Act of 1974
(2 U.S.C. 631 et seq.) is amended by adding at the end the following:
``authorizations of appropriations
``Sec. 316. (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,
amendment between the Houses, 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.''.
(b) 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:
``Sec. 316. Authorizations of appropriations.''.
SEC. 306. GOVERNMENT PLANS ON A BIENNIAL BASIS.
(a) 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 ``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'';
(B) in the second sentence by striking ``a
subsequent year'' and inserting ``a subsequent 2-year
period''; and
(C) in the third sentence by striking ``three'' and
inserting ``4''.
(b) Performance Plans.--Section 2803(a) of title 39, United States
Code, is amended--
(1) in the matter preceding paragraph (1), by striking ``an
annual'' and inserting ``a biennial'';
(2) in paragraph (1), by inserting ``for each fiscal year
during the biennial period'' after ``program activity'';
(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 a 2-year period beginning with the first fiscal
year of the next biennial budget cycle.''.
(c) Effective Date.--
(1) In general.--The amendments made by this section shall
take effect on March 1, 2026.
(2) 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.
SEC. 307. BIENNIAL APPROPRIATIONS BILLS.
(a) In General.--Title III of the Congressional Budget Act of 1974
(2 U.S.C. 631 et seq.), as amended by section 305(a), is amended by
adding at the end the following:
``consideration of biennial appropriations bills
``Sec. 317. 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.''.
(b) 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 305(b) the following:
``Sec. 317. Consideration of biennial appropriations bills.''.
Subtitle B--Compliance
SEC. 321. LIMITATION ON USE OF FEDERAL FUNDS FOR POLITICAL EMPLOYEE
OFFICIAL TRAVEL IF PRESIDENT'S BUDGET IS LATE.
Section 1105 of title 31, United States Code, as amended by section
201 of this Act, is amended by adding at the end the following:
``(k)(1) In this subsection--
``(A) the term `covered period' means the period--
``(i) beginning on--
``(I) the day after the first day on which
Congress is in session during any odd-numbered
year, if the budget under subsection (a) for
the next biennium was not submitted to Congress
on or before such first day in session; or
``(II) if applicable under section 300(b)
of the Congressional Budget Act of 1974 (2
U.S.C. 631(b)), the day after the first Monday
in February of 2029, or any odd-numbered year
thereafter, if the budget under subsection (a)
for the next biennium was not submitted to
Congress on or before such first Monday; and
``(ii) ending on the date on which the budget is
submitted; and
``(B) the term `political employee' means any individual--
``(i) occupying a position described under sections
5312 through 5316 of title 5 (relating to the Executive
Schedule);
``(ii) serving under a noncareer appointment in the
Senior Executive Service, as defined under paragraph
(7) of section 3132(a) of such title; or
``(iii) occupying a position in the executive
branch of the Government of a confidential or policy-
determining character under schedule C of subpart C of
part 213 of title 5, Code of Federal Regulations.
``(2) Except as provided in paragraph (3), during a covered period
no Federal funds may be obligated or expended for official travel by a
political employee.
``(3)(A) If a political employee is away from the seat of
Government on the first day of a covered period, Federal funds may be
obligated and expended for official travel for a single return trip to
the seat of Government by the political employee.
``(B) Federal funds may be obligated and expended for official
travel by a political employee during a covered period from one
location in the National Capital Region to another location in the
National Capital Region.
``(C) If a national security event that triggers a continuity of
operations or continuity of Government protocol occurs during a covered
period, Federal funds may be obligated and expended for official travel
by a political employee that relates to responding to the national
security event or implementing the continuity of operations or
continuity of Government protocol.''.
SEC. 322. LIMITATION ON USE OF FEDERAL FUNDS FOR PRESIDENTIAL TRAVEL
EXPENSES IF PRESIDENT'S BUDGET IS LATE.
Section 1105 of title 31, United States Code, as amended by section
321 of this Act, is amended by adding at the end the following:
``(l)(1) In this subsection--
``(A) the term `covered period' has the meaning given that
term in subsection (k)(1); and
``(B) the term `Federal funds' includes amounts made
available for--
``(i) the expense allowance of the President under
section 102 of title 3;
``(ii) travel expenses of the President under
section 103 of title 3;
``(iii) entertainment expenses of the President
under section 105(d)(3) of title 3; and
``(iv) subsistence expenses in connection with the
travel of the President in section 105(d)(4) of title
3.
``(2) Except as provided in paragraph (3), during a covered period
no Federal funds may be obligated or expended for the cost of travel by
the President.
``(3)(A) If the President is away from the seat of Government on
the first day of a covered period, Federal funds may be obligated and
expended for official travel for a single return trip to the seat of
Government by the President.
``(B) Federal funds may be obligated and expended for official
travel by the President during a covered period from one location in
the National Capital Region to another location in the National Capital
Region.
``(C) If a national security event that triggers a continuity of
operations or continuity of Government protocol occurs during a covered
period, Federal funds may be obligated and expended for official travel
by the President that relates to responding to the national security
event or implementing the continuity of operations or continuity of
Government protocol.''.
SEC. 323. SUBMISSION OF THE NATIONAL SECURITY STRATEGY AND THE BUDGET
OF THE PRESIDENT BEFORE THE PRESIDENT MAY ADDRESS A JOINT
SESSION OF CONGRESS.
(a) Definitions.--In this section--
(1) 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));
(2) the term ``National Security Strategy'' means the
report described in section 108 of the National Security Act of
1947 (50 U.S.C. 3043); and
(3) the term ``President's Budget Request'' means the
materials that are described in section 1105 of title 31,
United States Code, and are required to be submitted to
Congress on or before the first day on which Congress is in
session during an odd-numbered year under subsection (a)
section 300 of the Congressional Budget Act of 1974 (2 U.S.C.
631), as amended by this Act (or, if applicable under
subsection (b) of such section, the first Monday in February).
(b) Addressing a Joint Session of Congress To Follow the Budget and
Security Submissions.--
(1) Statement of policy.--Except as provided in paragraph
(2), neither the leadership of the Senate nor the leadership of
the House of Representatives may invite the President to
address a joint session of Congress until the President has
transmitted, and Congress has received, the National Security
Strategy and the President's Budget Request for the next
biennium.
(2) National security event exception.--Notwithstanding a
failure to transmit the National Security Strategy and the
President's Budget Request for the subsequent fiscal year, if a
national security event that triggers a continuity of
operations or continuity of Government protocol occurs, the
leadership of the Senate or the leadership of the House of
Representatives may invite the President to address a joint
session of Congress.
(3) Conforming amendment.--Section 300 of the Congressional
Budget Act of 1974 (2 U.S.C. 631), as amended by section 301 of
this Act, is amended--
(A) in subsection (a), in the table by striking the
item relating to the first day of session and inserting
the following:
``First day of session.................. President submits budget recommendations prior to addressing a joint
session of Congress.''; and
(B) in subsection (b), in the table by striking the
item relating to the first Monday in February and
inserting the following:
``First Monday in February.............. President submits budget recommendations prior to addressing a joint
session of Congress.''.
SEC. 324. NO BUDGET, NO TRAVEL.
(a) In General.--Section 300 of the Congressional Budget Act of
1974 (2 U.S.C. 631), as amended by section 301 of this Act, is amended
by adding at the end the following:
``(c) No Budget, No Travel.--
``(1) Definition.--In this subsection, the term `Member of
Congress' means a member of the Senate or the House of
Representatives, a Delegate to the House of Representatives,
and the Resident Commissioner from Puerto Rico.
``(2) Prohibition.--If either House of Congress, or the
Congress, fails to comply with any action by the deadline
specified under subsection (a) or subsection (b), as
applicable, during the period beginning on the day after the
date of the applicable deadline, and ending on the date on
which the action is completed, no Federal funds may be
obligated or expended for travel by a Member of the applicable
House of Congress.''.
Subtitle C--Effective Date
SEC. 341. EFFECTIVE DATE.
Except as provided in section 306, this title and the amendments
made by this title shall take effect on January 1, 2027, and shall
apply to budget recommendations, budget resolutions, and appropriations
for the biennium beginning with fiscal year 2028, and each biennium
thereafter.
TITLE IV--SENATE RULES REFORMS
SEC. 401. SETTING THE THRESHOLD TO WAIVE POINTS OF ORDER AT TWO-THIRDS.
(a) Congressional Budget Act of 1974.--Section 904 of the
Congressional Budget Act of 1974 (2 U.S.C. 621 note) is amended by
striking subsections (c), (d), and (e) and inserting the following:
``(c) Waivers.--Sections 301(i), 302(c), 302(f), 305(b)(2),
305(c)(4), 306, 310(d)(2), 310(g), 311(a), 312(b), 312(c), 313, 314(e),
314(f), 316, 317, 904(c), and 904(d) of this Act and sections
258(a)(4)(C), 258A(b)(3)(C)(i), 258B(f)(1), 258B(h)(1), 258B(h)(3),
258C(a)(5), and 258C(b)(1) of the Balanced Budget and Emergency Deficit
Control Act of 1985 may be waived or suspended in the Senate only by
the affirmative vote of two-thirds of the Members, duly chosen and
sworn.
``(d) Appeals.--
``(1) Procedure.--Appeals in the Senate from the decisions
of the Chair relating to any provision of title III or IV or
section 1017 shall, except as otherwise provided therein, be
limited to 1 hour, to be equally divided between, and
controlled by, the mover and the manager of the resolution,
concurrent resolution, reconciliation bill, or rescission bill,
as the case may be.
``(2) Vote threshold.--An affirmative vote of two-thirds of
the Members, duly chosen and sworn, shall be required in the
Senate to sustain an appeal of the ruling of the Chair on a
point of order raised under sections 301(i), 302(c), 302(f),
305(b)(2), 305(c)(4), 306, 310(d)(2), 310(g), 311(a), 312(b),
312(c), 313, 314(e), 314(f), 316, 317, 904(c), and 904(d) of
this Act and sections 258(a)(4)(C), 258A(b)(3)(C)(i),
258B(f)(1), 258B(h)(1), 258B(h)(3), 258C(a)(5), and 258C(b)(1)
of the Balanced Budget and Emergency Deficit Control Act of
1985.''.
(b) Statutory PAYGO.--Section 4(g)(3)(B) of the Statutory Pay-As-
You-Go Act (2 U.S.C. 933(g)(3)(B)(i)) is amended by striking ``three-
fifths'' each place it appears and inserting ``two-thirds''.
(c) Budget Resolutions.--
(1) Chimps with net costs.--Section 314(d) of Senate
Concurrent Resolution 70 (110th Congress), agreed to on June 5,
2008, is amended by striking ``three-fifths'' each place it
appears and inserting ``two-thirds''.
(2) Short-term deficits.--Section 404(b) of Senate
Concurrent Resolution 13 (111th Congress), agreed to on April
29, 2009, is amended by striking ``three-fifths'' each place it
appears and inserting ``two-thirds''.
(3) Long-term deficits.--Section 3101(c) of Senate
Concurrent Resolution 11 (114th Congress), agreed to on May 6,
2015, is amended by striking ``three-fifths'' each place it
appears and inserting ``two-thirds''.
(4) Senate paygo.--Section 4106(b) of House Concurrent
Resolution 71 (115th Congress), agreed to on October 26, 2017,
is amended by striking ``three-fifths'' each place it appears
and inserting ``two-thirds''.
(5) Advance appropriations.--Section 123(a)(3) of division
A of the Fiscal Responsibility Act of 2023 (Public Law 118-5;
137 Stat. 21), is amended by striking ``three-fifths'' each
place it appears and inserting ``two-thirds''.
SEC. 402. SURGICAL STRIKE POINT OF ORDER RELATING TO LEGISLATION
DEALING WITH THE CONGRESSIONAL BUDGET.
Section 306(a) of the Congressional Budget Act of 1974 (2 U.S.C.
637(a)) is amended to read as follows:
``(a) In the Senate.--
``(1) Point of order.--In the Senate, it shall not be in
order to consider a provision in a bill, joint resolution,
motion, amendment, amendment between the Houses, or conference
report containing any matter which is within the jurisdiction
of the Committee on the Budget of the Senate unless the
provision is in--
``(A) a bill or joint resolution which has been
reported by the Committee on the Budget of the Senate
(or from the consideration of which such committee has
been discharged); or
``(B) an amendment to, amendment between the Houses
in relation to, conference report on, or motion on a
bill or joint resolution described in subparagraph (A).
``(2) Point of order sustained.--If a point of order is
made by a Senator against a provision described in paragraph
(1), and the point of order is sustained by the Chair, that
provision shall be stricken from the measure and may not be
offered as an amendment from the floor.
``(3) Form of the point of order.--A point of order under
paragraph (1) may be raised by a Senator as provided in section
313(e).
``(4) Conference reports.--When the Senate is considering a
conference report on, or an amendment between the Houses in
relation to, a bill or joint resolution, upon a point of order
being made by any Senator pursuant to paragraph (1), and such
point of order being sustained, such material contained in such
conference report or House amendment shall be stricken, and the
Senate shall proceed 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. In the
Senate, debate on any such motion, and any debatable motions
and appeals in connection therewith, shall be limited to 1
hour. 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 paragraph), no
further amendment shall be in order.''.
TITLE V--OTHER MATTERS
SEC. 501. CHANGES IN THE BASELINE.
(a) In General.--Section 257 of the Balanced Budget and Emergency
Deficit Control Act of 1985 (2 U.S.C. 907) is amended--
(1) by striking subsection (a) and inserting the following:
``(a) In General.--For any biennium, the baseline refers to a
projection, based on current laws and the assumption of continuation of
current levels of discretionary appropriations, of current-year levels
of new budget authority, outlays, revenues, and the surplus or deficit
into each fiscal year of the biennium and the outyears based on laws
enacted through the applicable date.'';
(2) in subsection (b)--
(A) by striking paragraph (1) and inserting the
following:
``(1) In general.--Laws providing or creating direct
spending and receipts are assumed to operate in the manner
specified in those laws for each such year.'';
(B) by striking paragraph (2); and
(C) by redesignating paragraph (3) as paragraph
(2); and
(3) in subsection (c)--
(A) in paragraph (1), in the second sentence, by
striking ``current year'' and all that follows through
the period at the end and inserting ``current year,
excluding resources designated as an emergency
requirement and any resources provided in supplemental
appropriation laws.'';
(B) by striking paragraphs (2), (3), (4), and (5);
(C) by redesignating paragraph (6) as paragraph
(2); and
(D) by adding at the end the following:
``(3) No adjustment for inflation.--No adjustment shall be
made for inflation or for any other factor.''.
(b) Conforming Amendments.--
(1) Section 202(e)(1) of the Congressional Budget Act of
1974 (2 U.S.C. 602(e)(1)) is amended--
(A) by inserting ``and'' before ``(B) the levels'';
and
(B) by striking ``, and (C)'' and all that follows
through ``1985''.
(2) Section 403(a)(3) of the Social Security Act (42 U.S.C.
603(a)(3)) is amended--
(A) by striking subparagraph (G); and
(B) by redesignating subparagraph (H) as
subparagraph (G).
(c) Effective Date.--This section and the amendments made by this
section shall take effect on January 1, 2027, and shall apply to any
baseline projection for the biennium beginning with fiscal year 2028,
and each biennium thereafter.
<all>