[Congressional Record Volume 151, Number 49 (Thursday, April 21, 2005)]
[Senate]
[Pages S4123-S4127]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. DOMENICI (for himself, Mr. Lieberman, Mr. Frist, Mr. 
        Lugar, Mr. Isakson, Mr. Enzi, Mr. Feingold, Mr. Crapo, Mr. 
        Alexander, Mr. Bunning, Mr. Sessions, Mr. Allard, and Mr. 
        Corzine):
  S. 877. A bill to provide for a biennial budget process and a 
biennial appropriations process and to enhance oversight and the 
performance of the Federal Government; to the Committee on the Budget.
  Mr. DOMENICI. Mr. President, on behalf of Senator Lieberman, the 
distinguished Ranking Member of the Governmental Affairs Committee and 
eleven other Senators, I rise to introduce the ``Biennial Budgeting and 
Appropriations Act,'' a bill to convert the annual budget and 
appropriations process to a two-year cycle and to enhance oversight of 
federal programs.
  Our most recent experience with the Omnibus Consolidated 
Appropriations Act shows the need for a biennial appropriations and 
budget process. That one bill clearly demonstrated Congress is 
incapable of completing the budget, authorizing, and appropriations 
process on an annual basis. That 1,000 plus paged bill contained nine 
of the regular appropriations bills.
  Congress should now act to streamline the system by moving to a two-

[[Page S4124]]

year, or biennial, budget process. This is the most important reform we 
can enact to streamline the budget process, to make the Senate a more 
deliberative and effective institution, and to make us more accountable 
to the American people.
  Moving to a biennial budget and appropriations process enjoys very 
broad support. President Bush has supported a biennial budgeting 
process. Presidents Clinton, Reagan and Bush also proposed a biennial 
appropriations and budget cycle. Leon Panetta, who served as White 
House Chief of Staff, OMB Director, and House Budget Committee 
Chairman, has advocated a biennial budget since the late 1970s. Former 
OMB and CBO Director Alice Rivlin has called for a biennial budget the 
past two decades. The Majority Leader is a co-sponsor of this 
legislation.
  Vice President Gore's National Performance Review and the 1993 Joint 
Committee on the Reorganization of Congress both recommended a biennial 
appropriations and budget cycle.
  A biennial budget will dramatically improve the current budget 
process. The current annual budget process is redundant, inefficient, 
and destined for failure each year. Look at what we struggle to 
complete each year under the current annual process. The annual budget 
process consumes three years: one year for the Administration to 
prepare the President's budget, another year for the Congress to put 
the budget into law, and the final year to actually execute the budget.
  Today, I want to focus just on the Congressional budget process, the 
process of annually passing a budget resolution, authorization 
legislation, and multiple appropriation bills. The record clearly shows 
that last year's experience was nothing new. Under the annual process, 
we consistently fail to complete action on multiple appropriations 
bills, to authorize programs, and to meet our deadlines.
  While we have made a number of improvements in the budget process, 
the current annual process is redundant and inefficient. The Senate has 
the same debate, amendments and votes on the same issue three or four 
times a year--once on the budget resolution, again on the authorization 
bill, and finally on the appropriations bill.
  A few years ago, I asked the Congressional Research Service (CRS) to 
update and expand upon an analysis of the amount of time we spend on 
the budget. CRS looked at all votes on appropriations, revenue, 
reconciliation, and debt limit measures as well as budget resolutions. 
CRS then examined any other vote dealing with budgetary levels, Budget 
Act waivers, or votes pertaining to the budget process. Beginning with 
1980, budget related votes started dominating the work of the Senate. 
In 1996, 73 percent of the votes the Senate took were related to the 
budget.
  If we cannot adequately focus on our duties because we are constantly 
debating the budget throughout the authorizing, budgeting, and 
appropriations process, just imagine how confused the American public 
is about what we are doing. The result is that the public does not 
understand what we are doing and it breeds cynicism about our 
government.
  Under the legislation I am introducing today, the President would 
submit a 2-year budget and Congress would consider a 2-year budget 
resolution and 2-year appropriation bills during the first session of a 
Congress. The second session of the Congress would be devoted to 
consideration of authorization bills and for oversight of government 
agencies.
  Most of the arguments against a biennial budget process will come 
from those who claim we cannot predict or plan on a two year basis. For 
most of the budget, we do not actually budget on an annual basis. Our 
entitlement and revenue laws are under permanent law and Congress does 
not change these laws on an annual basis. The only component of the 
budget that is set in law annually are the appropriated, or 
discretionary, accounts.
  The most predictable category of the budget are these appropriated, 
or discretionary, accounts of the federal government. Much of this 
spending is associated with international activities or emergencies. 
Because most of this funding cannot be predicted on an annual basis, a 
biennial budget is no less deficient than the current annual process. 
My bill does not preclude supplemental appropriations necessary to meet 
these emergency or unanticipated requirements.
  In 1993 I had the honor to serve as co-Chairman on a Joint Committee 
that studied the operations of the Congress. Senator Byrd testified 
before that Committee that the increasing demands put on us as Senators 
has led to our ``fractured attention.'' We simply are too busy to 
adequately focus on the people's business. This legislation is designed 
to free up time and focus our attention, particularly with respect to 
the oversight of Federal programs and activities.
  Frankly, the limited oversight we are now doing is not as good as it 
should be. Our authorizing committees are increasingly crowded out of 
the legislative process. Under a biennial budget, the second year of 
the biennium will be exclusively devoted to examining federal programs 
and developing authorization legislation. The calendar will be free of 
the budget and appropriations process, giving these committees the time 
and opportunity to provide oversight, review and legislate changes to 
federal programs. Oversight and the authorization should be an ongoing 
process, but a biennial appropriations process will provide greater 
opportunity for legislators to concentrate on programs and policies in 
the second year.
  Mr. President, a biennial budget cannot make the difficult decisions 
that must be made in budgeting, but it can provide the tools necessary 
to make much better decisions. Under the current annual budget process 
we are constantly spending the taxpayers' money instead of focusing on 
how best and most efficiently we should spend the taxpayers' money. By 
moving to a biennial budget cycle, we can plan, budget, and appropriate 
more effectively, strengthen oversight and watchdog functions, and 
improve the efficiency of government agencies.
  I ask unanimous consent that the text of the bill be printed in the 
Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                 S. 877

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Biennial Budgeting and 
     Appropriations Act''.

     SEC. 2. REVISION OF TIMETABLE.

       Section 300 of the Congressional Budget Act of 1974 (2 
     U.S.C. 631) is amended to read as follows:


                              ``timetable

       ``Sec. 300. (a) In General.--Except as provided by 
     subsection (b), the timetable with respect to the 
     congressional budget process for any Congress (beginning with 
     the One Hundred Tenth Congress) is as follows:

       

                             ``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 Budget
                                             Committees.
Not later than 6 weeks after budget         Committees submit views and
 submission.                                 estimates to Budget
                                             Committees.
April 1...................................  Budget Committees report
                                             concurrent resolution on
                                             the biennial budget.
May 15....................................  Congress completes action on
                                             concurrent resolution on
                                             the biennial budget.
May 15....................................  Biennial appropriation bills
                                             may be considered in the
                                             House.
June 10...................................  House Appropriations
                                             Committee reports last
                                             biennial appropriation
                                             bill.
June 30...................................  House completes action on
                                             biennial appropriation
                                             bills.
August 1..................................  Congress completes action on
                                             reconciliation legislation.
October 1.................................  Biennium begins.
 
                            ``Second Session
 
``On or before:                             Action to be completed:
 
February 15...............................  President submits budget
                                             review.
Not later than 6 weeks after President      Congressional Budget Office
 submits budget review.                      submits report to Budget
                                             Committees.
The last day of the session...............  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 in subsection 
     (a):

  

                             ``First Session
``On or before:                             Action to be completed:

[[Page S4125]]

 
First Monday in April.....................  President submits budget
                                             recommendations.
April 20..................................  Committees submit views and
                                             estimates to Budget
                                             Committees.
May 15....................................  Budget Committees report
                                             concurrent resolution on
                                             the biennial budget.
June 1....................................  Congress completes action on
                                             concurrent resolution on
                                             the biennial budget.
July 1....................................  Biennial appropriation bills
                                             may be considered in the
                                             House.
July 20...................................  House completes action on
                                             biennial appropriation
                                             bills.
August 1..................................  Congress completes action on
                                             reconciliation legislation.
October 1.................................  Biennium begins.''.
 

     SEC. 3. 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:
       ``(11) 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 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 ``May 
     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)) 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 inserting ``(or, if 
     applicable, as provided by section 300(b))'' after ``United 
     States Code''.
       (5) Hearings.--Section 301(e)(1) of such Act (2 U.S.C. 
     632(e)) is amended by--
       (A) striking ``fiscal year'' and inserting ``biennium''; 
     and
       (B) inserting after the second sentence the following: ``On 
     or before April 1 of each odd-numbered year (or, if 
     applicable, as provided by section 300(b)), the Committee on 
     the Budget of each House shall report to its House the 
     concurrent resolution on the budget referred to in subsection 
     (a) for the biennium beginning on October 1 of that year.''.
       (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 item relating to section 301 in 
     the table of contents set forth in section 1(b) of such Act 
     is amended by striking ``Annual'' and inserting ``Biennial''.
       (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), by striking ``April 15'' and 
     inserting ``May 15 or June 1 (under section 300(b))'';
       (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)(1), by striking ``for a fiscal year'' 
     and inserting ``for a biennium'';
       (5) in subsection (f)(1), by striking ``the first fiscal 
     year'' and inserting ``each fiscal year of the biennium'';
       (6) in subsection (f)(2)(A), by--
       (A) striking ``the first fiscal year'' and inserting ``each 
     fiscal year of the biennium''; and
       (B) striking ``the total of fiscal years'' and inserting 
     ``the total of all fiscal years covered by the resolution''; 
     and
       (7) in subsection (g)(1)(A), by striking ``April'' and 
     inserting ``May''.
       (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 ``the first fiscal year'' and inserting ``each 
     fiscal year of the biennium''; and
       (B) striking ``that fiscal year'' each place it appears and 
     inserting ``that biennium''.
       (2) Exceptions in the house.--Section 303(b)(1) of such Act 
     (2 U.S.C. 634(b)) is amended--
       (A) in subparagraph (A), by striking ``the budget year'' 
     and inserting ``the biennium''; and
       (B) in subparagraph (B), by striking ``the fiscal year'' 
     and inserting ``the biennium''.
       (3) Application to the senate.--Section 303(c)(1) of such 
     Act (2 U.S.C. 634(c)) 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(a) of such Act (2 U.S.C. 635) is 
     amended--
       (1) by striking ``fiscal year'' the first two places it 
     appears and inserting ``biennium''; and
       (2) by striking ``for such fiscal year'' and inserting 
     ``for such biennium''.
       (g) Procedures for Consideration of Budget Resolutions.--
     Section 305 of such Act (2 U.S.C. 636(3)) 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 Action on Appropriation Bills.--
     Section 307 of such Act (2 U.S.C. 638) is amended--
       (1) by striking ``each year'' and inserting ``each odd-
     numbered year'';
       (2) by striking ``annual'' and inserting ``biennial'';
       (3) by striking ``fiscal year'' and inserting ``biennium''; 
     and
       (4) by striking ``that year'' and inserting ``each odd-
     numbered year''.
       (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 calendar year'' 
     after ``July'';
       (2) by striking ``annual'' and inserting ``biennial''; and
       (3) by striking ``fiscal year'' and inserting ``biennium''.
       (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 
     ``any fiscal year'' and inserting ``any biennium''; and
       (2) in paragraph (1) by striking ``such fiscal year'' each 
     place it appears and inserting ``any fiscal year covered by 
     such resolution''.
       (k) Section 311 Point of Order.--
       (1) In the house.--Section 311(a)(1) of such Act (2 U.S.C. 
     642(a)) 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 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 ``each 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 
     is amended by--
       (A) striking ``for the first fiscal year'' and inserting 
     ``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 the 
     Congressional Budget Act of 1974 (2 U.S.C. 643) is amended--
       (1) by striking ``for a fiscal year'' and inserting ``for a 
     biennium'';
       (2) in paragraph (1), by striking ``the first fiscal year'' 
     and inserting ``either fiscal year in the biennium'';
       (3) in paragraph (2), by striking ``that fiscal year'' and 
     inserting ``either fiscal year in the biennium''; and
       (4) in the matter following paragraph (2), by striking 
     ``that fiscal year'' and inserting ``the applicable fiscal 
     year''.

     SEC. 4. AMENDMENTS TO TITLE 31, UNITED STATES CODE.

       (a) Definition.--Section 1101 of title 31, United States 
     Code, is amended by adding at the end thereof the following 
     new paragraph:
       ``(3) `biennium' has the meaning given to such term in 
     paragraph (11) of section 3 of the Congressional Budget and 
     Impoundment Control Act of 1974 (2 U.S.C. 622(11)).''.
       (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 Monday in February of each 
     odd-numbered year (or, if applicable, as provided by section 
     300(b) of the Congressional Budget Act of 1974), beginning 
     with the One Hundred Ninth Congress, the President shall 
     transmit to the Congress, the

[[Page S4126]]

     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 in subparagraph (A), by 
     striking ``the fiscal year'' and inserting ``each fiscal year 
     in the 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 2 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 2 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''.
       (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) 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 February 15 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) striking ``the fiscal year'' and inserting ``each 
     fiscal year in the biennium'';
       (B) inserting after ``Before July 16 of each year'' the 
     following: ``and February 15 of each even-numbered year''; 
     and
       (C) striking ``submitted before July 16'' and inserting 
     ``required by this subsection''.
       (g) 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 period''.
       (2) Joint economic committee.--Section 1109(b) of title 31, 
     United States Code, is amended by striking ``March 1 of each 
     year'' and inserting ``within 6 weeks of the President's 
     budget submission for each odd-numbered year (or, if 
     applicable, as provided by section 300(b) of the 
     Congressional Budget Act of 1974)''.
       (h) Year-Ahead Requests for Authorizing Legislation.--
     Section 1110 of title 31, United States Code, is amended by--
       (1) striking ``May 16'' and inserting ``March 31''; and
       (2) striking ``year before the year in which the fiscal 
     year begins'' and inserting ``calendar year preceding the 
     calendar year in which the biennium begins''.

     SEC. 5. TWO-YEAR APPROPRIATIONS; TITLE AND STYLE OF 
                   APPROPRIATIONS ACTS.

       Section 105 of title 1, United States Code, is amended to 
     read as follows:

     ``Sec. 105. Title and style of appropriations Acts

       ``(a) The style and title of all Acts making appropriations 
     for the support of the Government shall be as follows: `An 
     Act making appropriations (here insert the object) for each 
     fiscal year in the biennium of fiscal years (here insert the 
     fiscal years of the biennium).'.
       ``(b) All Acts making regular appropriations for the 
     support of the Government shall be enacted for a biennium and 
     shall specify the amount of appropriations provided for each 
     fiscal year in such period.
       ``(c) For purposes of this section, the term `biennium' has 
     the same meaning as in section 3(11) of the Congressional 
     Budget and Impoundment Control Act of 1974 (2 U.S.C. 
     622(11)).''.

     SEC. 6. MULTIYEAR AUTHORIZATIONS.

       (a) In General.--Title III of the Congressional Budget Act 
     of 1974 is amended by adding at the end the following new 
     section:


                   ``authorizations of appropriations

       ``Sec. 316. (a) Point of Order.--It shall not be in order 
     in the House of Representatives or the Senate to consider--
       ``(1) any bill, joint resolution, amendment, motion, 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 
     set forth in section 1(b) of the Congressional Budget and 
     Impoundment Control Act of 1974 is amended by adding after 
     the item relating to section 315 the following new item:

``Sec. 316. Authorizations of appropriations.''.

     SEC. 7. GOVERNMENT PLANS ON A BIENNIAL BASIS.

       (a) Strategic Plans.--Section 306 of title 5, United States 
     Code, is amended--
       (1) in subsection (a), by striking ``September 30, 1997'' 
     and inserting ``September 30, 2005'';
       (2) in subsection (b)--
       (A) by striking ``five years forward'' and inserting ``6 
     years forward'';
       (B) by striking ``at least every three years'' and 
     inserting ``at least every 4 years''; and
       (C) by striking beginning with ``, except that'' through 
     ``four years''; and
       (3) in subsection (c), by inserting a comma after 
     ``section'' the second place it appears and adding 
     ``including a strategic plan submitted by September 30, 2005 
     meeting the requirements of subsection (a)''.
       (b) Budget Contents and Submission to Congress.--Paragraph 
     (28) of section 1105(a) of title 31, United States Code, is 
     amended by striking ``beginning with fiscal year 1999, a'' 
     and inserting ``beginning with fiscal year 2006, a 
     biennial''.
       (c) Performance Plans.--Section 1115 of title 31, United 
     States Code, is amended--
       (1) in subsection (a)--
       (A) in the matter before paragraph (1)--
       (i) by striking ``section 1105(a)(29)'' and inserting 
     ``section 1105(a)(28)''; and
       (ii) by striking ``an annual'' and inserting ``a 
     biennial'';
       (B) in paragraph (1) by inserting after ``program 
     activity'' the following: ``for both years 1 and 2 of the 
     biennial plan'';
       (C) in paragraph (5) by striking ``and'' after the 
     semicolon,
       (D) in paragraph (6) by striking the period and inserting a 
     semicolon; and inserting ``and'' after the inserted 
     semicolon; and
       (E) 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.'';
       (2) in subsection (d) by striking ``annual'' and inserting 
     ``biennial''; and

[[Page S4127]]

       (3) in paragraph (6) of subsection (f) by striking 
     ``annual'' and inserting ``biennial''.
       (d) 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)'';
       (2) in subsection (e)--
       (A) in the first sentence by striking ``one or'' before 
     ``years'';
       (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''.
       (e) Pilot Projects for Performance Budgeting.--Section 1119 
     of title 31, United States Code, is amended--
       (1) in paragraph (1) of subsection (d), by striking 
     ``annual'' and inserting ``biennial''; and
       (2) in subsection (e), by striking ``annual'' and inserting 
     ``biennial''.
       (f) Strategic Plans.--Section 2802 of title 39, United 
     States Code, is amended--
       (1) is subsection (a), by striking ``September 30, 1997'' 
     and inserting ``September 30, 2005'';
       (2) by striking ``five years forward'' and inserting ``6 
     years forward'';
       (3) in subsection (b), by striking ``at least every three 
     years'' and inserting ``at least every 4 years''; and
       (4) in subsection (c), by inserting a comma after 
     ``section'' the second place it appears and inserting 
     ``including a strategic plan submitted by September 30, 2005 
     meeting the requirements of subsection (a)''.
       (g) Performance Plans.--Section 2803(a) of title 39, United 
     States Code, is amended--
       (1) in the matter before paragraph (1), by striking ``an 
     annual'' and inserting ``a biennial'';
       (2) in paragraph (1), by inserting after ``program 
     activity'' the following: ``for both years 1 and 2 of the 
     biennial plan'';
       (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.''.
       (h) Committee Views of Plans and Reports.--Section 301(d) 
     of the Congressional Budget Act (2 U.S.C. 632(d)) is amended 
     by adding at the end ``Each committee of the Senate or the 
     House of Representatives shall review the strategic plans, 
     performance plans, and performance reports, required under 
     section 306 of title 5, United States Code, and sections 1115 
     and 1116 of title 31, United States Code, of all agencies 
     under the jurisdiction of the committee. Each committee may 
     provide its views on such plans or reports to the Committee 
     on the Budget of the applicable House.''.
       (i) Effective Date.--
       (1) In general.--The amendments made by this section shall 
     take effect on March 1, 2005.
       (2) Agency actions.--Effective on and after the date of 
     enactment of this Act, each agency shall take such actions as 
     necessary to prepare and submit any plan or report in 
     accordance with the amendments made by this Act.

     SEC. 8. BIENNIAL APPROPRIATIONS BILLS.

       (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:


            ``consideration of biennial appropriations bills

       ``Sec. 317. It shall not be in order in the House of 
     Representatives or the Senate in any odd-numbered year to 
     consider any regular bill providing new budget authority or a 
     limitation on obligations under the jurisdiction of any of 
     the subcommittees of the Committees on Appropriations for 
     only the first fiscal year of a biennium, unless the program, 
     project, or activity for which the new budget authority or 
     obligation limitation is provided will require no additional 
     authority beyond 1 year and will be completed or terminated 
     after the amount provided has been expended.''.
       (b) Amendment to Table of Contents.--The table of contents 
     set forth in section 1(b) of the Congressional Budget and 
     Impoundment Control Act of 1974 is amended by adding after 
     the item relating to section 316 the following new item:

``Sec. 317. Consideration of biennial appropriations bills.''.

     SEC. 9. REPORT ON TWO-YEAR FISCAL PERIOD.

       Not later than 180 days after the date of enactment of this 
     Act, the Director of OMB shall--
       (1) determine the impact and feasibility of changing the 
     definition of a fiscal year and the budget process based on 
     that definition to a 2-year fiscal period with a biennial 
     budget process based on the 2-year period; and
       (2) report the findings of the study to the Committees on 
     the Budget of the House of Representatives and the Senate.

       SEC. 10. EFFECTIVE DATE.

       (a) In General.--Except as provided in sections 8 and 10 
     and subsection (b), this Act and the amendments made by this 
     Act shall take effect on January 1, 2007, and shall apply to 
     budget resolutions and appropriations for the biennium 
     beginning with fiscal year 2008.
       (b) Authorizations for the Biennium.--For purposes of 
     authorizations for the biennium beginning with fiscal year 
     2006, the provisions of this Act and the amendments made by 
     this Act relating to 2-year authorizations shall take effect 
     January 1, 2005.
                                 ______