119 S2090 IS: Budget Reform Act of 2025
U.S. Senate
2025-06-17
text/xml
EN
Pursuant to Title 17 Section 105 of the United States Code, this file is not subject to copyright protection and is in the public domain.
II
119th CONGRESS
1st Session
S. 2090
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.
1.

Short title
This Act may be cited as the “Budget Reform Act of 2025”.
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.
I

Congressional Budget Office reforms
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.
II

Zero-based budgeting
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.
III

Biennial budget timetable reforms
A

Biennial budgeting and appropriations
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:
“300.

Timetable
(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 budget recommendations | 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.
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 review | 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.
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)”.
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”.
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”.
304.

Two-year appropriations; title and style of appropriations Acts
Section 105 of title 1, United States Code, is amended to read as follows:
“105.

Title and style of appropriations Acts
(a)
The style and title of all Acts making appropriations for the support of the Government shall be as follows: “An Act making appropriations (here insert the object) for each fiscal year in the biennium of fiscal years (here insert the fiscal years of the biennium).”.
(b)
All Acts making regular appropriations for the support of the Government shall be enacted for a biennium and shall specify the amount of appropriations provided for each fiscal year in such period.
(c)
For purposes of this section, the term biennium has the same meaning as in section 3(12) of the Congressional Budget and Impoundment Control Act of 1974 (2 U.S.C. 622(12)).”.
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:
“316.

Authorizations of appropriations
(a)

Point of Order
It shall not be in order in the House of Representatives or the Senate to consider—
(1)
any bill, joint resolution, amendment, motion, 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.”.
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.
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:
“317.

Consideration of biennial appropriations bills
It shall not be in order in the House of Representatives or the Senate in any odd-numbered year to consider any regular bill providing new budget authority or a limitation on obligations under the jurisdiction of any of the subcommittees of the Committees on Appropriations for only the first fiscal year of a biennium, unless the program, project, or activity for which the new budget authority or obligation limitation is provided will require no additional authority beyond 1 year and will be completed or terminated after the amount provided has been expended.”.
(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.”.
B

Compliance
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.”.
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.”.
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.”.
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.”.
C

Effective date
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.
IV

Senate rules reforms
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”.
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.”.
V

Other matters
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.