Text: H.R.298 — 102nd Congress (1991-1992)All Information (Except Text)

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HR 298 IH1S
102d CONGRESS
1st Session
 H. R. 298
To amend the Congressional Budget and Impoundment Control Act of 1974 to
reform the budget process, and for other purposes.
IN THE HOUSE OF REPRESENTATIVES
January 3, 1991
Mr. COX of California (for himself, Mr. ARCHER, Mr. ARMEY, Mr. BAKER,
Mr. BALLENGER, Mr. BARRETT, Mr. BARTON of Texas, Mr. BARTLETT, Mr. BATEMAN,
Mrs. BENTLEY, Mr. BEREUTER, Mr. BILIRAKIS, Mr. BLILEY, Mr. BOEHNER, Mr. BURTON
of Indiana, Mr. BUNNING, Mr. BROOMFIELD, Mr. CALLAHAN, Mr. CAMPBELL of
California, Mr. COBLE, Mr. COMBEST, Mr. CRANE, Mr. DANNEMEYER, Mr. DELAY,
Mr. DICKINSON, Mr. DOOLITTLE, Mr. DORNAN of California, Mr. DREIER of
California, Mr. DUNCAN, Mr. EDWARDS of Oklahoma, Mr. EMERSON, Mr. FRANKS of
Connecticut, Mr. GALLO, Mr. GINGRICH, Mr. GOSS, Mr. GRANDY, Mr. GUNDERSON,
Mr. HANCOCK, Mr. HANSEN, Mr. HERGER, Mr. HASTERT, Mr. HEFLEY, Mr. HOLLOWAY,
Mr. HOUGHTON, Mr. HUNTER, Mr. HYDE, Mr. INHOFE, Mr. IRELAND, Mr. JAMES,
Mrs. JOHNSON of Connecticut, Mr. KASICH, Mr. KOLBE, Mr. KYL, Mr. LAGOMARSINO,
Mr. LEWIS of California, Mr. LEWIS of Florida, Mr. LIGHTFOOT, Mr. LIVINGSTON,
Mr. LOWERY of California, Mr. MACHTLEY, Mr. MADIGAN, Mr. MCCANDLESS,
Mr. MCCOLLUM, Mr. MCCRERY, Mr. MCEWEN, Mrs. MEYERS of Kansas, Mr. MICHEL,
Ms. MOLINARI, Mr. MOORHEAD, Mr. NICHOLS, Mr. OXLEY, Mr. PACKARD, Mr. PARKER,
Mrs. PATTERSON, Mr. PAXON, Mr. PENNY, Mr. PORTER, Mr. PURSELL, Mr. RAMSTAD,
Mr. RHODES, Mr. RIGGS, Mr. RINALDO, Mr. RITTER, Mr. ROHRABACHER, Mr. ROBERTS,
Ms. ROS-LEHTINEN, Mrs. ROUKEMA, Mr. SANTORUM, Mr. SENSENBRENNER, Mr. SHAW,
Mr. SMITH of Oregon, Mr. SMITH of Texas, Ms. SNOWE, Mr. SOLOMON, Mr. STEARNS,
Mr. SUNDQUIST, Mr. THOMAS of California, Mr. THOMAS of Wyoming, Mr. UPTON,
Mrs. VUCANOVICH, Mr. WALKER, Mr. WALSH, Mr. WELDON, Mr. ZELIFF, and Mr. ZIMMER)
introduced the following bill; which was referred jointly to the Committees
on Appropriations, Government Operations, Rules, and Ways and Means.
A BILL
To amend the Congressional Budget and Impoundment Control Act of 1974 to
reform the budget process, and for other purposes.
  Be it enacted by the Senate and House of Representatives of the United
  States of America in Congress assembled,
SECTION 1. SHORT TITLE; TABLE OF CONTENTS.
  (a) SHORT TITLE- This Act may be cited as the `Budget Process Reform Act'.
TABLE OF CONTENTS
TITLE I--STATEMENT OF CONGRESSIONAL PURPOSE
Sec. 101. Improvement in decision-making process.
Sec. 102. Reform of fiscal management.
Sec. 103. Safeguards against delay and inaction.
TITLE II--BINDING BUDGET LAW
Sec. 201. Joint resolution establishing binding budget law.
Sec. 202. Budget required before spending bills may be considered.
Sec. 203. `Baseline' budgeting prohibited; unadjusted year-to-year comparisons
required in budget law.
Sec. 204. President's budget submissions.
TITLE III--ENFORCEMENT MECHANISMS
Subtitle A--Supermajority Required to Break Budget Law
Sec. 301. Two-thirds requirement for all spending bills in absence of
budget law.
Sec. 302. Two-thirds requirement for over-budget spending bills.
(a) Determination of budget effect of all proposed spending bills.
(b) CBO report required before consideration of spending bills.
(c) Two-thirds requirement for all over-budget spending bills.
(d) Determination of spending in a category.
Sec. 303. Two-thirds requirement for waiver of the act.
Subtitle B--Limited Enhanced Rescission Authority
Sec. 304. Rescission authority limited to spending above limits of
congressional budget law.
Sec. 305. Application.
Subtitle C--`Blank Check' Appropriations Prohibited
Sec. 306. Intent of Congress.
Sec. 307. Fixed-dollar appropriations required.
Sec. 308. Agency-adjusted benefits.
Sec. 309. Budget authority and entitlement authority may cover only a single
fiscal period.
Subtitle D--`Pay As You Go' Requirement for New Spending
Sec. 310. Spending offsets required.
Sec. 311. Two-thirds vote required to waive point of order.
TITLE IV--SUSTAINING MECHANISM
Sec. 401. Automatic continuing resolution.
Sec. 402. Contingency regulations.
Sec. 403. Unauthorized appropriations prohibited.
TITLE V--PROTECTION OF SOCIAL SECURITY
Sec. 501. Benefits protected against deficit reduction.
Sec. 502. Conforming amendment.
TITLE VI--TIMETABLE
Sec. 601. Revision of timetable.
TITLE VII--CONFORMING AMENDMENTS
Sec. 701. Conforming and technical amendments changing `Concurrent' to
`Joint' Resolutions.
Sec. 702. Further conforming and technical amendments.
Sec. 703. Conforming amendments to the Impoundment Control Act of 1974.
Sec. 704. Conforming amendment to title 31, United States Code.
TITLE VIII--DEFINITIONS AND RULES OF INTERPRETATION
Sec. 801. Definitions.
(a) Definition of budget law.
(b) Other definitions.
Sec. 802. Amendments to Congressional Budget and Impoundment Control Act
of 1974.
Sec. 803. Use of terms.
TITLE IX--EFFECTIVE DATE
Sec. 901. General provision.
Sec. 902. Fiscal year.
TITLE I--STATEMENT OF CONGRESSIONAL PURPOSE
SEC. 101. IMPROVEMENT IN DECISION-MAKING PROCESS.
  Because the Federal budget process is the principal vehicle by which many
  of the most fundamental policy choices in Government are made, the purpose
  of this Act is to facilitate rational, informed, and timely decisions by
  the Congress in the course of that process.
SEC. 102. REFORM OF FISCAL MANAGEMENT.
  It is the sense of the Congress that a properly functioning Federal budget
  process should focus the attention of policymakers and the public on the
  aggregate impact of Federal spending on the economy, and on the tradeoffs
  that must be made among priorities in order to control overall levels of
  spending. To this end, the Act is intended to establish a budget process
  that, in each fiscal period--
  (1) requires the adoption of a budget before, not after, any spending begins;
  (2) produces decisions on that budget early in the budgeting cycle;
  (3) encourages cooperation between Congress and the President in adopting
  the budget;
  (4) ties each subsequent spending decision to an overall, binding budget
  total;
  (5) requires regular, periodic decisions on appropriate spending levels for
  all Federal programs, not just those arbitrarily deemed `controllable'; and
  (6) produces a bias in favor of fiscal responsibility that can be overcome
  only if the Congress expressly determines to do so.
SEC. 103. SAFEGUARDS AGAINST DELAY AND INACTION.
  The Congress further finds that a properly functioning budget process
  should contain safeguards against delay and inaction, so that temporary
  shut-downs of the Federal Government may be avoided when the President and
  the Congress fail to complete work on the budget prior to the beginning of a
  fiscal period. Accordingly, this Act is intended to provide an enforcement
  mechanism that gives meaning and importance to the timely adoption of
  a budget, and a sustaining mechanism that ensures a continuation of the
  Government should the political process produce deadlock or a failure to
  act in a timely fashion.
TITLE II--BINDING BUDGET LAW
SEC. 201. JOINT RESOLUTION ESTABLISHING BINDING BUDGET LAW.
  To encourage early consultation and cooperation between the Congress and the
  President on decisions concerning overall spending levels for all Federal
  programs, the Congress shall enact a binding budget law, in the form of
  a joint resolution, by April 15 of the calendar year before that in which
  the fiscal period commences. The technical amendments contained in title VI
  and section 701 of this Act are intended to assist in the establishment of
  this requirement. The budget law itself shall fit on a single page, which
  sets forth specific budget ceilings in the following 19 major functional
  categories, which together comprise the entire Federal budget.
  Function 050: National Defense
  Function 150: International Affairs
  Function 250: General Science, Space and Technology
  Function 270: Energy
  Function 300: Natural Resources and Environment
  Function 350: Agriculture
  Function 400: Transportation
  Function 450: Community and Regional Development
  Function 500: Education, Training, Employment and Social Services
  Function 550: Health
  Function 570: Medicare
  Function 600: Income Security
  Function 650: Social Security
  Function 700: Veterans Benefits and Services
  Function 750: Administration of Justice
  Function 800: General Government
  Function 900: Net Interest
  Function 920: Allowances
  Function 950: Undistributed Offsetting Receipts.
  By thus requiring that the budget process begin with highly generalized
  macroeconomic decisions about spending in 19 overall categories, this
  section is intended to facilitate agreement within Congress itself, and
  between Congress and the President, on how much the Federal Government
  should spend in the ensuing fiscal period.
SEC. 202. BUDGET REQUIRED BEFORE SPENDING BILLS MAY BE CONSIDERED.
  Unless and until a joint resolution on the budget is enacted with respect to
  any major functional category for a fiscal period, it shall not be in order
  in either the House of Representatives or the Senate, or any committee or
  subcommittee thereof, to consider any spending bill affecting spending in
  that category, except as provided in Title III of this Act. The purpose
  of this provision is to ensure that until the budget is signed into law,
  no authorization or appropriations bill shall be considered in the Congress.
SEC. 203. `BASELINE' BUDGETING PROHIBITED; UNADJUSTED YEAR-TO-YEAR COMPARISONS
REQUIRED IN BUDGET LAW.
  Section 301(e) of the Congressional Budget Act of 1974 is amended by--
  (1) inserting after the second sentence the following: `The starting point
  for any deliberations in the Committee on the Budget of each House on the
  joint resolution on the budget for the next fiscal period shall be the
  estimated level of outlays for the current period in each function and
  subfunction. Any increases or decreases in the Congressional budget for
  the next fiscal period shall be from such estimated levels.';
  (2) striking paragraphs (2) and (3) and inserting the following:
  `(2) a comparison of levels for the current fiscal period with proposed
  spending for the subsequent fiscal periods along with the proposed
  increase or decrease of spending in percentage terms for each function
  and subfunction;
  `(3) information, data, and comparisons indicating the manner in which,
  and the basis on which, the committee determined each of the matters set
  forth in the joint resolution, including information on outlays for the
  current fiscal period and the decisions reached to set funding for the
  subsequent fiscal years;';
  (3) inserting `and' after the semicolon in paragraph (7);
  (4) striking paragraph (8); and
  (5) redesignating paragraph (9) as paragraph (8).
  The technical amendments contained in sections 702(g) and 704(b) of this
  Act are intended to apply the same prohibition against      `baseline'
  budgeting to the budgets prepared by the President and the Congressional
  Budget Office reports to the Budget Committees.
SEC. 204. PRESIDENT'S BUDGET SUBMISSIONS.
  On or before the fifteenth day after a joint resolution on the budget is
  enacted, the President shall submit to the Congress a detailed budget for
  the fiscal period beginning on October 1 of the current calendar year,
  including all summaries and explanations required under section 1105(a)
  of title 31, United States Code.
TITLE III--ENFORCEMENT MECHANICS
Subtitle A--Supermajority Required to Break Budget Law
SEC. 301. TWO-THIRDS REQUIREMENT FOR ALL SPENDING BILLS IN ABSENCE OF
BUDGET LAW.
  Unless and until a joint resolution on the budget is enacted with respect to
  any major functional category for a fiscal period, it shall not be in order
  in either the House of Representatives or the Senate or any committee or
  subcommittee thereof, to consider any spending bill affecting spending in
  that category unless it is approved by the affirmative vote of two-thirds
  of the Members voting, a quorum being present.
SEC. 302. TWO-THIRDS REQUIREMENT FOR OVER-BUDGET SPENDING BILLS.
  (a) DETERMINATION OF BUDGET EFFECT OF ALL PROPOSED SPENDING BILLS- The
  Congressional Budget Office shall provide to either House of Congress (or
  the appropriate committee, subcommittee, or conference thereof) as soon
  as practicable after the introduction of any spending bill, its estimate
  of the costs in each major functional category attributable to that bill
  during the fiscal period in which it is to become effective and in each of
  the next 4 fiscal years, together with the basis for such estimate. The
  Congressional Budget Office report shall not be required, however,
  if the Congressional Budget Office certifies that a spending bill will
  likely result in applicable costs of less than $10,000,000. For purposes
  of estimating the costs attributable to any spending bill that includes
  new credit authority, the report shall deem the market value of any loan
  (if it were sold by the Federal Government) or the assumption cost of any
  guarantee (if it were assumed at market rates) to be the costs attributable
  to such loan or guarantee in the fiscal period in which it is made.
  (b) CBO REPORT REQUIRED BEFORE CONSIDERATION OF SPENDING BILLS- It shall
  not be in order in either the House of Representatives or the Senate, or
  in any committee thereof, to consider any spending bill, unless and until
  the report referred to in subsection (a) has been made available to that
  House of Congress or the appropriate committee or subcommittee thereof.
  (c) TWO-THIRDS REQUIREMENT FOR ALL OVER-BUDGET SPENDING BILLS- It shall
  not be in order in either the House of Representatives or the Senate, or
  in any committee, subcommittee, or conference) to consider any spending
  bill for a fiscal period that the report referred to in subsection (a)
  indicates would in such fiscal period exceed a budget ceiling, unless
  such bill is approved by the affirmative vote of two-thirds of the Members
  voting, a quorum being present.
  (d) DETERMINATION OF  SPENDING IN A CATEGORY- A spending bill shall be
  deemed to break a budget ceiling if--
  (1) its cost in any major functional category as estimated in the report
  referred to in subsection (a); and
  (2) all other budget authority, budget outlays, and entitlement authority,
  if any, in that major functional category for the relevant fiscal period
  contained in any previously enacted legislation for the fiscal period; and
  (3) to the extent that new budget authority or entitlement authority for
  the relevant fiscal period has not been granted (or modified from the
  level of the previous fiscal period) in any other enacted legislation for
  any program within such major functional category, the amounts of budget
  authority and entitlement authority for such major functional category
  (or part thereof) for the previous fiscal period;
exceed the budget ceiling for such major functional category.
SEC.  303. TWO-THIRDS REQUIREMENT FOR WAIVER OF THIS ACT.
  No waiver of any provision of this Act, including the calendar deadlines for
  completion of Congressional action and the provisions concerning over-budget
  spending, shall be effective unless approved by the affirmative vote of
  two-thirds of the Members of the House of Representatives or the Senate, as
  the case may be, a quorum being present. No committee of either the House
  of Representatives or the Senate shall have jurisdiction to report a rule
  governing procedures for consideration of spending bills covered by this Act,
  if such rule would violate the provisions of this section. Nothing in this
  provision shall be deemed to require a supermajority vote to amend this Act.
Subtitle B--Limited Enhanced Rescission Authority
SEC. 304. RESCISSION AUTHORITY LIMITED TO SPENDING ABOVE LIMITS OF
CONGRESSIONAL BUDGET LAW.
  The Impoundment Control Act of 1974 (2 U.S.C. 681 et seq.) is amended by
  redesignating sections 1013 through 1017 as sections 1014 through 1018,
  respectively, and inserting after section 1012 the following new section:
`RESCISSION OF SPENDING ABOVE LIMITS OF CONGRESSIONAL BUDGET LAW
  `SEC. 1013. (a) TRANSMITTAL OF SPECIAL MESSAGE- The President may transmit
  to both Houses of Congress for consideration in accordance with this
  section one or more special messages to rescind (in whole or in part)
  items of budget authority or entitlement authority sufficient to ensure
  that the levels of budget authority, entitlement authority, and outlays
  in a functional category do not exceed the levels stated in the budget
  law for the applicable fiscal period (or, in the absence of a budget law,
  do not exceed such levels in the previous fiscal period).
  `(b) LIMITATIONS- For purposes of this section--
  `(1) continuing appropriations made pursuant to section 1311 of title 31,
  United States Code, shall be treated as continuing appropriations for an
  entire fiscal period; and
  `(2) the levels of budget authority, entitlement authority, and outlays shall
  be determined on the basis of the reports made by the Congressional Budget
  Office pursuant to section 202 of the Budget Process Reform Act of 1990.
  `(c) CONTENTS OF SPECIAL MESSAGE- Each special message transmitted under
  subsection (a) shall specify, with respect to each item of budget authority
  to be rescinded, the matters referred to in paragraphs (1) through (5)
  of section 1012(a).
  `(d) REQUIREMENT NOT TO MAKE AVAILABLE FOR OBLIGATION- Any item of budget
  authority to be rescinded as set forth in such special message shall not be
  made available for obligation unless, within the prescribed 45-day period,
  Congress completes action on a rescission bill disapproving the rescission
  of the amount to be rescinded. Funds made available for obligation under
  this procedure may not be included in a special message again.
  `(e) PROCEDURES-
  `(1)(A) Before the close of the third day beginning after the day on which
  a special message to rescind an item of budget authority is transmitted to
  the House of Representatives and the Senate under subsection (a), a bill
  may be introduced (by request) by the majority leader or minority leader
  of the House of the Congress in which the appropriation Act providing the
  budget authority originated to disapprove the rescission set forth in the
  special message. If such House is not in session on the day on which a
  special message is transmitted, the bill may be introduced in such House,
  as provided in the preceding sentence, on the first day thereafter on
  which such House is in session.
  `(B) A bill introduced in the House of Representatives or the Senate pursuant
  to subparagraph (A) shall be referred to the Committee on Appropriations of
  such House. The Committee shall report the bill without substantive revision
  (and with or without recommendation) not later than 15 calendar days of
  continuous session of the Congress after the date on which the bill is
  introduced. A committee failing to report a bill within the 15-day period
  referred to in the preceding sentence shall be automatically discharged from
  consideration of the bill and the bill shall be placed on the appropriate
  calendar.
  `(C) A vote on final passage of a bill introduced in a House of the Congress
  pursuant to subparagraph (A) shall be taken on or before the close of the
  25th calendar day of continuous session of the Congress after the date of
  the introduction of the bill in such House. If the bill is agreed to, the
  Clerk of the House of Representatives (in the case of a bill agreed to in
  the  House of Representatives) or the Secretary of the Senate (in the case
  of a bill agreed to in the Senate) shall cause the bill to be engrossed,
  certified, and transmitted to the other House of the Congress on the same
  calendar day on which the bill is agreed to.
  `(2)(A) A bill transmitted to the House of Representatives or the
  Senate pursuant to paragraph (1)(C) shall be referred to the Committee
  on Appropriations of such House. The committee shall report the bill
  without substantive revision (and with or without recommendation) not
  later than 10 calendar days of continuous session of the Congress after
  the bill is transmitted to such House. A committee failing to report the
  bill within the 10-day period referred to in the preceding sentence shall
  be automatically discharged from consideration of the bill and the bill
  shall be placed upon the appropriate calendar.
  `(B) A vote on the final passage of a bill transmitted to a House of the
  Congress pursuant to paragraph (1)(C) shall be taken on or before the close
  of the 10th calendar day of continuous session of the Congress after the
  date on which the bill is transmitted to such House. If the bill is agreed
  to in such House, the Clerk of the  House of Representatives  (in the case
  of a bill agreed to in the  House of Representatives) or the Secretary of
  the Senate (in the case of a bill agreed to in the Senate) shall cause the
  engrossed bill to be returned to the House in which the bill originated,
  together with a statement of the action taken by the House acting under
  this paragraph.
  `(3)(A) A motion in the House of Representatives to proceed to the
  consideration of a bill under this section shall be highly privileged
  and not debatable. An amendment to the motion shall not be in order, nor
  shall it be in order to move to reconsider the vote by which the motion
  is agreed to or disagreed to.
  `(B) Debate in the House of Representatives on a bill under this section
  shall be limited to not more than 2 hours, which shall be divided equally
  between those favoring and those opposing the bill. A motion further to
  limit debate shall not be debatable and shall require an affirmative vote
  of two-thirds of the Members voting, a quorum being present. It shall not
  be in order to move to recommit a bill under this section or to move to
  reconsider the vote by which the bill is agreed to or disagreed to.
  `(C) All appeals from the decisions of the Chair relating to the application
  of the Rules of the House of Representatives to the procedure relating to
  a bill under this section shall be decided without debate.
  `(D) Except to the extent specifically provided in the preceding provisions
  of this subsection, consideration of a bill under this section shall be
  governed by the Rules of the House of Representatives applicable to other
  bills in similar circumstances.
  `(4)(A) A motion in the Senate to proceed to the consideration of a bill
  under this section shall be privileged and not debatable. An amendment
  to the motion  shall not be in order, nor shall it be in order to move to
  reconsider the vote by which the motion is agreed to or disagreed to.
  `(B) Debate in the Senate  on a bill under this section, and all debatable
  motions and appeals in connection therewith, shall be limited to not more
  than 2 hours. The time shall be equally divided between, and controlled by,
  the majority leader and the minority leader or their designees.
  `(C) Debate in the Senate on any debatable motion or appeal in connection
  with a bill under this section shall be limited to not more than 1 hour,
  to be equally divided between, and controlled by, the mover and the manager
  of the bill except that in the event the manager of the bill is in favor of
  any such motion or appeal, the time in opposition thereto shall be controlled
  by the minority leader or his designee. Such leaders, or either of them, may,
  from time under their control on the passage of a bill, allot additional time
  to any Senator during the consideration of any debatable motion or appeal.
  `(D) A motion in the Senate to further limit debate on a bill under this
  section is not debatable. A motion to recommit a bill under this section
  is not in order.
  `(f) AMENDMENTS PROHIBITED- No amendment to a bill considered under this
  section shall be in order in either the House of Representatives or the
  Senate. No motion to suspend the application of this subsection shall be
  in order in either House, not shall it be in order  in either House for
  the presiding officer to entertain a request to suspend the application
  of this subsection by unanimous consent.'.
SEC. 305. APPLICATION.
  The amendments made by section 304 shall apply to items of budget authority
  (as defined in subsection (g)(1) of section 1013, as added by section 103(b)
  of this Act) provided by appropriation Acts (as defined in subsection (g)(3)
  of such section) that become law after the date of enactment of this Act.
Subtitle C--`Blank Check' Appropriations Prohibited
SEC. 306. INTENT OF CONGRESS.
  It is the intent of Congress, by this provision, to put an end to open-ended,
  `blank check' appropriations, which typically authorize the spending of `such
  sums as may be necessary.' By requiring explicit decisions concerning the
  desired level of spending for each federal program (except social security
  and interest on the debt), it is intended that currently uncontrolled
  programs will be brought within the discipline of an overall budget.
SEC. 307. FIXED-DOLLAR APPROPRIATIONS REQUIRED.
  (a) FIXED-DOLLAR APPROPRIATIONS- For every account except social security
  and interest on the debt, every appropriation for a fiscal period for
  any program, project, or activity shall be for a specific, fixed dollar
  amount. Any appropriations of `such sums as may be necessary' (except with
  respect to the automatic continuing resolution provided for by section
  401 of this Act) are hereby prohibited.
  (b) POINT OF ORDER- It shall not be in order in either the House of
  Representatives or the Senate (or in any committee, subcommittee, or
  conference) to consider any appropriation that is in violation of subsection
  (a).
SEC. 308. AGENCY-ADJUSTED BENEFITS.
  The head of each Executive agency that administers any entitlement program
  is authorized to adjust benefit levels and eligibility requirements, or
  both, with respect to the program such that aggregate outlays for a fiscal
  period do not exceed the fixed-dollar appropriation proved pursuant to
  this title such fiscal period. Such adjustment shall be made by rule or,
  pending adoption of appropriate rules, informal guideline. The purpose
  of any such rule or guideline shall be to ensure that the fixed-dollar
  appropriations for the program authorized by Congress are not exceeded.
SEC. 309. BUDGET AUTHORITY AND ENTITLEMENT AUTHORITY MAY COVER ONLY A SINGLE
FISCAL PERIOD.
  Chapter 13 of title 31, United States Code, is amended by inserting after
  section 1312 the following new section:
`Sec. 1313. Budget authority and entitlement authority must cover single
fiscal period
  `(a) Notwithstanding any other provision of law and except as provided
  by subsection (b), no budget authority or entitlement authority--
  `(1) enacted on or after the date of enactment of this section shall be
  effective for more than one fiscal period; or
  `(2) enacted before the date of enactment of this section shall continue
  in effect beyond the end of the first fiscal period beginning after the
  date of enactment of this section.
  `(b) Subsection (a) does not apply with respect to appropriations for the
  repayment of indebtedness incurred under chapter 31 or benefits payable
  under the old-age, survivors, and disability insurance program established
  under title II of the Social Security Act.'.
Subtitle D--`Pay As You Go' Requirement for New Spending
SEC. 310. SPENDING OFFSETS REQUIRED.
  It shall not be in order in either the House of Representatives or the
  Senate to consider any supplemental appropriation measure, or any other
  bill, resolution, or amendment which authorizes, requires, or provides
  new entitlements/mandatory spending as defined in section 3 (12)(A) of the
  Congressional Budget and Impoundment Control Act of 1974, or which authorizes
  spending for a fiscal period that the report referred to in section 302(a)
  of this Act indicates would in such fiscal period exceed a budget ceiling,
  any such increased spending called for therein is offset fully in each
  such fiscal period in such measure, bill, resolution or amendment by an
  equal amount of reductions in existing spending.
SEC. 311. TWO-THIRDS VOTE REQUIRED TO WAIVE POINT OF ORDER.
  The point of order established by this subtitle may be waived or suspended
  in the Senate or in the House of Representatives, and an appeal of the
  ruling of the Chair on a point of order raised under this section may be
  sustained, only by the affirmative vote of two-thirds of the Members voting,
  a quorum being present.
TITLE IV--SUSTAINING MECHANISM
SEC. 401. AUTOMATIC CONTINUING RESOLUTION.
  Chapter 13 of title 31, United States Code, is amended by inserting after
  section 1310 the following new section:
`Sec. 1311. Continuing appropriation
  `(a) If for any account an appropriation for a fiscal period does not
  become law before the beginning of such fiscal period, there are hereby
  appropriated, out of any moneys in the Treasury not otherwise appropriated,
  and out of applicable corporate or other revenues, receipts, and funds,
  such sums as may be necessary to continue any program, project, or activity
  provide for in the most recent appropriation Act at a rate of operations not
  in excess of the rate of operations provided for such program, project,
  or activity in such Act. In no case shall the total dollar amount of
  appropriations for any program, project or activity pursuant to this
  section exceed the appropriation for such program, project, or activity
  in the most recent appropriation Act, determined on a fiscal-period basis.
  `(b) Amounts appropriated pursuant to subsection (a) for a program, project,
  or activity shall be available during a fiscal period until the earlier of--
  `(1) the day on which the appropriation bill for such fiscal period which
  would include the program, project, or activity takes effect; or
  `(2) the last day of such fiscal period.'.
SEC. 402. CONTINGENCY REGULATIONS.
  Chapter 13 of title 31, United States Code, is amended by inserting after
  section 1311 the following new section:
`Sec. 1312. Contingency regulations
  `(a) Notwithstanding any other provisions of law and except as provided
  by subsection (b), the head of each Executive agency that administers any
  entitlement program shall, by rule, (or informal guideline, pending adoption
  of appropriate rules), provide for the adjustments of benefit levels or
  eligibility requirements, or both, with respect to the program such that
  aggregate outlays for a fiscal period do not exceed the fixed-dollar
  appropriation provided pursuant to section 314 (requiring fixed-dollar
  appropriations) or section 401 (providing for an Automatic Continuing
  Resolution) of this Act for such fiscal period.
  `(b) In the case of social safety net programs, the rules shall provide
  each State the option of receiving an aggregate amount for the fiscal
  period for such programs equal to the amount it received for the preceding
  fiscal period for such programs (in which case such State could, in its
  discretion, allocate the benefits among such programs to best meet the
  needs of recipients in its State) or the amounts it received for each such
  program for such preceding fiscal period.
  `(c) As used in this section--
  `(1) the term `Executive agency' has the meaning given such term in section
  105 of title 5, United States Code;
  `(2) the term `entitlement program' means any spending authority as defined
  in section 401(c)(2)(C) of the Congressional Budget Act of 1974; and
  `(3) the term `social safety net programs' means the following programs:
  family support payments, adoption assistance, child support enforcement,
  food stamps, foster care, medicaid, child nutrition programs, social
  services block grant, and supplemental security income (SSI).'.
SEC. 403. UNAUTHORIZED APPROPRIATIONS PROHIBITED.
  Section 401(b) is amended to read as follows:
  `(b) CONTROLS ON LEGISLATION PROVIDING FUNDING- (1) It shall not be in
  order in either the  House of Representatives  or the Senate to consider
  any bill, resolution, or conference report that provides budget authority
  or spending authority described in subsection (c)(2)(C) except a bill or
  resolution reported by the Committee on Appropriations of that House or a
  conference report made by a committee or conference all of whose conferees
  are member of the Committee on Appropriations.
  `(2) Paragraph (1) shall not apply to benefits payable under the old-age,
  survivors, and disability insurance program established under title II of
  the Social Security Act.'.
TITLE V--PROTECTION OF SOCIAL SECURITY
SEC. 501. BENEFITS PROTECTED AGAINST DEFICIT REDUCTION.
  Nothing in this Act shall be construed to require or permit reductions
  in Social Security benefits otherwise payable pursuant to applicable law
  or regulations.
SEC. 502. CONFORMING AMENDMENT.
  Chapter 13 of title 31,  United States Code, is amended by inserting after
  section 1313 the following new section:
`Sec. 1314. Protection of social security from budget deficit reduction
measures
  `No reductions in benefits payable under the old-age, survivors, and
  disability insurance program established under title II of the Social
  Security Act shall be made as a consequence of the Budget Process Reform
  Act'.
TITLE VI--TIMETABLE
SEC. 601. REVISION OF TIMETABLE.
  Section 300 (2 U.S.C. 631) is amended to read as follows:
`TIMETABLE
  `SEC. 300. The timetable with respect to the Congressional budget process for
  any Congress (beginning with the One Hundred Third Congress) is as follows:
`On or before:
Action to be completed:
First Monday in February
President submits short-form budget recommendations.
February 15
Congressional Budget Office submits report to Budget Committees.
February 25
Committees submit views and estimates to Budget Committees.
March 31
Budget Committees report joint resolution on the budget.
April 15
Congress completes action on joint resolution on the budget and transmits
it to the President for signature or veto.
President signs joint resolution, or Congress overrides veto
Authorization and appropriations bills may be considered in the Congress.
15th day after enactment of joint budget resolution
President submits complete budget and support documents.
June 10
Appropriations Committees report last of annual appropriation bills.
September 30
Congress completes action on reconciliation legislation and annual
appropriation bills.
October 1
Fiscal period begins. Congress completes all necessary action on budget,
authorizations and appropriations, or automatic continuing resolution takes
effect.'.
TITLE VII--CONFORMING AMENDMENTS
SEC. 701. CONFORMING AND TECHNICAL AMENDMENTS CHANGING `CONCURRENT' TO
`JOINT' RESOLUTIONS.
  (a) Sections 300, 301, 302, 303, 304, 305, 308, 310, and  311 (2 U.S.C. 631
  et seq.) are amended by striking `concurrent resolutions' each place it
  appears and by inserting `joint resolution'.
  (b) The table of contents set forth in section 1(b) is amended by striking
  `Concurrent' in the items relating to sections 301, 303, and 304 and
  inserting `Joint'.
  (c) Clauses 4(a)(2), 4(b)(2), 4(g), and 4(h) of rule X, clause 8 of rule
  XXIII, and rule XLIX of the Rules of the  House of Representatives  are
  amended by striking `concurrent' and by inserting in its place `joint'.
  (d) Section 258C(b)(1) of the Deficit Control Action of 1985 is amended
  by striking `concurrent' and by inserting `joint'.
SEC. 702. FURTHER CONFORMING AND TECHNICAL AMENDMENTS.
  (a) Section 302(f) (2 U.S.C. 633(f)) is amended--
  (1) in paragraph (1) by striking `(1) IN THE HOUSE OF REPRESENTATIVES- ',
  by striking `new budget authority for such fiscal year, new entitlement
  authority effective during such fiscal year, or' and by striking `new
  discretionary budget authority, new entitlement authority, or'; and
  (2) by striking paragraph (2).
  (b) Section 303 is amended--
  (1) in its heading by striking `NEW BUDGET AUTHORITY, NEW SPENDING
  AUTHORITY,' and the comma before `OR CHANGES';
  (2) in subsection (a) by striking paragraphs (1), (4) and (5) and by
  redesignating paragraphs (2), (3), and (6) as paragraphs (1), (2), and
  (3), respectively; and
  (3) in subsection (b) by striking paragraph (1)(A), by striking `(B)',
  by striking the dash after `resolution', and by striking the last sentence.
  (c) The table of contents set forth in section 1(b) is amended by striking
  `new budget authority, new spending authority,' and the comma before
  `or changes' in the item relating to section 303.
  (d) Section 311 is amended--
  (1) in its heading by striking `NEW BUDGET AUTHORITY, NEW SPENDING
  AUTHORITY, AND';
  (2) in subsection (a)(1) by striking `providing new budget authority for
  such fiscal year, providing new entitlement  authority effective during
  such fiscal year, or'; by striking `the appropriate level of total new
  budget authority or total budget outlays set forth in the most recently
  agreed to concurrent resolution on the budget to be exceeded, or';
  (3) by repealing subsection (b); and
  (4) by redesignating subsection (c) as subsection (b), and by striking
  `new budget authority, budget outlays, new entitlement authority, and'
  in subsection (c) (as redesignated).
  (e) The table of contents set forth in section 1(b) is amended by striking
  `new budget authority, new spending authority, and' in the item relating
  to section 311.
  (f) The last sentence of clause 4(b) of rule XI of the Rules of the House
  of Representatives is amended by inserting before the period at the end of
  the following: `; nor shall it report any rule or order which would waive
  any point of order set forth in title III of the Budget Process Reform Act'.
  (g) The first sentence of section 202(f)(1) of the Congressional Budget
  Act of 1974 is amended to read as follows: `On or before February 15
  of each year, the Director shall submit to the Committees on the Budget
  of the House of Representatives and the Senate a report, for the fiscal
  year commencing on October 1 of that year, with respect to fiscal policy,
  including (A) estimated budget outlays in all functions and subfunctions
  for appropriated accounts for the current fiscal year and estimated
  budget outlays under current law for all entitlement programs for the next
  fiscal year, (B) alternative levels of total revenues, total new budget
  authority, and total outlays (including related surpluses and deficits),
  and (C) the levels of tax expenditures under existing law, taking into
  account projected economic factors and any changes in such levels based
  on proposals in the budget submitted by the President for such fiscal year.'.
SEC. 703. CONFORMING AMENDMENTS TO THE IMPOUNDMENT CONTROL ACT OF 1974.
  (a) Section 1011(5) (2 U.S.C. 682(5)) is amended--
  (1) by striking `1012, and' and inserting `1012, the 20-day periods referred
  to in paragraphs (1)(b) and (2)(A) of section 1013(c), the 45-day period
  referred to in section 1013(b), and';
  (2) by striking `1012 during' and inserting `1012 or 1013 during';
  (3) by striking `of 45' and inserting `of the applicable number of'; and
  (4) by striking `45-day period referred to in paragraph (3) of this section
  and in section 1012' and inserting `period or periods of time applicable
  under such section'.
  (b) Section 1011 is further amended--
  (1) in paragraph (4) by striking `1013' and inserting `1014'; and
  (2) in paragraph (5)--
  (A) by striking `1016' and inserting `1017'; and
  (B) by striking `1017(b)(1)' and inserting `1018(b)(1)'.
  (c) Section 1015 (as redesignated) is amended--
  (1) by striking `1012 or 1013' each place it appears and inserting `1012,
  1013, or 1014';
  (2) in subsection (b)(1) by striking `1012' and inserting `1012 or 1013';
  (3) in subsection (b)(2) by striking `1013' and inserting `1014'; and
  (4) in subsection (e)(1)--
  (A) by striking `and' at the end of subparagraph (A),
  (B) by redesignating subparagraph (B) as subparagraph (C),
  (C) by striking `1013' in subparagraph (C) (as redesignated), and
  (D) by inserting after subparagraph (A) the following new subparagraph:
  `(B) he has transmitted a special message under section 1013 with respect
  to a proposed rescission; and'.
  (d) Section 1016 (as redesignated) is amended by striking `1012 or 1013'
  each place it appears and inserting `1012, 1013, or 1014'.
  (e) Section 1012(b) is amended by inserting before the last sentence the
  following new sentence: `The preceding sentence shall not apply to any
  item of budget authority proposed by the President to be rescinded under
  this section that the President has also proposed to rescind under section
  1013 and with respect to which the 45-day period referred to in subsection
  (e) of such section has not expired.'.
  (f) The table of sections set forth in section 1(b) is amended--
  (1) by redesignating the items relating to sections 1013 through 1017 as
  items relating to sections through 1018, respectively; and
  (2) by inserting after the item relating to section 1012 the following
  new item:
`Sec. 1013. Rescission of spending outside of congressional budget.'.
SEC. 704. CONFORMING AMENDMENT TO TITLE 31, UNITED STATES CODE.
  (a) The analysis of chapter 13 of title 31, United States Code, is amended
  by inserting after the item relating to section 1310 the following new items:
`Sec. 1311. Continuing appropriation.
`Sec. 1312. Contingency regulations.
`Sec. 1313. Appropriations must be biennial.
`Sec. 1314. Protection of Social Security from budget deficit reduction
measures.'.
  (b) Paragraph (5) of section 1105(a) of title 31, United States Code,
  is amended to read as follows:
  `(5) except as provided in subsection (b) of this section--
  `(A) estimated expenditures and proposed appropriations for each function
  and subfunction in the current fiscal year;
  `(B) estimated expenditures and proposed appropriations the President
  decides are necessary to support the Government for each function and
  subfunction in the fiscal year for which the budget is submitted; and
  `(C) a comparison of levels of estimated expenditures and proposed
  appropriations for each function and subfunction in the current fiscal
  year and the fiscal year for which the budget is submitted, along with
  the proposed increase or decrease of spending in percentage terms for each
  function and subfunction;'.
  (b) Section 1105(a) of title 31, United States Code, is amended--
  (1) in the first sentence, by inserting `on a single page, which sets
  forth specific budget ceilings for that fiscal period in the nineteen major
  functional categories described in section 201 of the Budget Process Reform
  Act' before the period; and
  (2) by repealing the second sentence and all of the third sentence preceding
  the colon and inserting the following: `On or before the fifteenth day after
  a joint resolution on the budget for that budget period is enacted, the
  President shall submit a detailed budget for that fiscal period, including
  a budget message and summary and supporting information, as follows'.
TITLE VIII--DEFINITIONS AND RULES OF INTERPRETATION
SEC. 801. DEFINITIONS.
  (a) DEFINITION OF BUDGET LAW- Section 3(4) (2 U.S.C. 622(4)), containing
  general definitions under the Budget Act is amended to read as follows:
  `(4) The term `budget law' or `joint resolution on the budget' means--
  `(A) a joint resolution setting forth the simplified budget for the United
  States Government for a fiscal period as provided in section 301; and
  `(B) any other joint resolution revising the budget for the United States
  Government for a fiscal period as described in section 304.'.
  (b) OTHER DEFINITIONS- Section 3 (2 U.S.C. 622) is further amended by
  adding at the end the following new paragraphs:
  `(11) The term `major functional category' refers to the groupings of budget
  authority, budget outlays, and credit authority (including continuing
  appropriations pursuant to section 1331 of title 31, United States Code)
  into any one of the following:
  `Function  050: National Defense
  `Function  150: International Affairs
  `Function  250: General Science, Space and Technology
  `Function  270: Energy
  `Function  300: Natural Resources and Environment
  `Function  350: Agriculture
  `Function  400: Transportation
  `Function  450: Community and Regional Development
  `Function  500: Education, Training, Employment and Social Services
  `Function  550: Health
  `Function  570: Medicare
  `Function  600: Income Security
  `Function  650: Social Security
  `Function  700: Veterans Benefits and Services
  `Function  750: Administration of Justice
  `Function  800: General Government
  `Function  900: Net Interest
  `Function  920: Allowances
  `Function  950: Undistributed Offsetting Receipts.'.
  `(12) The term `budget ceiling' means the dollar amount set forth in a
  budget law for a major functional category.
  `(13) The term `spending bill' means any bill or resolution, or amendment
  thereto or conference report thereon, which provides budget authority,
  spending authority, credit authority, or outlays.
  `(14) The term `fiscal period' means the twelve-month fiscal year beginning
  October 1 currently in use, or any other fiscal period (such as a biennial
  period) that may subsequently be adopted for the management of the budget
  of the United States.'.
SEC. 802. AMENDMENTS TO CONGRESSIONAL BUDGET AND IMPOUNDMENT CONTROL ACT
OF 1974.
  Except as otherwise expressly provided, whenever any provision of this
  Act is expressed as an amendment to a section or other provision, the
  reference shall be deemed to be made to a section or other provision of
  the Congressional Budget and Impoundment Control Act of 1974.
SEC. 803. USE OF TERMS.
  Whenever any term is used in this Act which is defined in section 3 of the
  Congressional Budget Impoundment Control Act of 1974, the term shall have
  the meaning given to such term in that Act.
TITLE IX--EFFECTIVE DATE
SEC. 901. GENERAL PROVISION.
  Except as provided in section 902, this Act and the amendments made by it
  shall become effective January 1, 1993, and shall apply to fiscal periods
  beginning after September 30, 1993.
SEC. 902. FISCAL YEAR 1993.
  Notwithstanding subsection (a), the provisions of--
  (1) the Congressional Budget Impoundment Control Act of 1974,
  (2) title 31, United States Code, and
  (3) the Balanced Budget and Emergency Deficit Control Act of 1985, (as such
  provisions were in effect on the day before the effective date of this Act)
  shall apply to the fiscal year beginning on October 1, 1992.