[Congressional Record Volume 154, Number 24 (Wednesday, February 13, 2008)]
[Senate]
[Pages S971-S975]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]
By Mr. DOMENICI (for himself, Mr. Lieberman, Mr. Sessions, Mr.
Feingold, Mr. Isakson, Mr. Alexander, Mr. Voinovich, Mr. Lugar,
Mr. Chambliss, Mrs. Hutchison, Mr. Martinez, Mr. Enzi, Mr.
Corker, and Ms. Snowe):
S. 2627. 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 chairman of the Homeland Security and Governmental
Affairs Committee, I rise to introduce the Biennial Budgeting and
Appropriations Act, a bill to convert the annual budget and
appropriations process to a 2-year cycle and to enhance oversight of
Federal programs.
Mr. President, our most recent experience with the fiscal year 2008
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 and unfortunantly, this is
not the first time.
[[Page S972]]
Congress should now act to streamline the system by moving to a 2-
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 George W. 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. 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 3 years: 1 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.
Several 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 we are 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 2-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 cochairman 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.
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.
Mr. President, I ask unanimous consent that the text of the bill be
printed in the Record.
There being no objection, the material was ordered to be printed in
the Record as follows:
S. 2627
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 Eleventh 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
[[Page S973]]
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:
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
[[Page S974]]
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 Eleventh Congress, 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 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, 2009'';
(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, 2009
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 2010, 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'';
[[Page S975]]
(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
(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, 2009'';
(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, 2009
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, 2009.
(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.
Except as provided in section 7, this Act and the
amendments made by this Act shall take effect on January 1,
2009, and shall apply to budget resolutions and
appropriations for the biennium beginning with fiscal year
2010.
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