[Federal Register Volume 85, Number 17 (Monday, January 27, 2020)]
[Notices]
[Pages 4719-4721]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-01290]


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OFFICE OF MANAGEMENT AND BUDGET


2019 Statutory Pay-As-You-Go Act Annual Report

AGENCY: Office of Management and Budget (OMB).

ACTION: Notice.

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SUMMARY: This report is being published as required by the Statutory 
Pay-As-You-Go (PAYGO) Act of 2010. The Act requires that OMB issue an 
annual report and a sequestration order, if necessary.

FOR FURTHER INFORMATION CONTACT: Erin O'Brien. 202-395-3106.

SUPPLEMENTARY INFORMATION: This report can be found at https://www.whitehouse.gov/omb/paygo/.

    Authority: 2 U.S.C. 934.

Kelly A. Kinneen,
Assistant Director for Budget.

    This Report is being published pursuant to section 5 of the 
Statutory Pay-As-You-Go (PAYGO) Act of 2010, Public Law 111-139, 124 
Stat. 8, 2 U.S.C. 934, which requires that OMB issue an annual PAYGO 
report, including a sequestration order if necessary, no later than 14 
working days after the end of a congressional session.
    This Report describes the budgetary effects of all PAYGO 
legislation enacted during the first session of the 116th Congress and 
presents the 5-year and 10-year PAYGO scorecards maintained by OMB. 
Because neither the 5-year nor 10-year scorecard shows a debit for the 
budget year, which for purposes of this Report is fiscal year 2020,\1\ 
a sequestration order under subsection 5(b) of the PAYGO Act, 2 U.S.C. 
934(b) is not necessary.
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    \1\ References to years on the PAYGO scorecards are to fiscal 
years.
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    The budget year balance on each of the PAYGO scorecards is zero 
because two laws, the Bipartisan Budget Act of 2019 (Pub. L. 116-37), 
and the Further Continuing Appropriations Act, 2020, and Further Health 
Extenders Act of 2019 (Pub. L. 116-69), directed changes to the 
balances of the scorecards. Public Law 116-37 removed all balances 
included on the scorecards at the time of enactment, and Public Law 
116-69 shifted the debits on both scorecards from fiscal year 2020 to 
fiscal year 2021. The changes directed by these laws are discussed in 
more detail in section IV of this report.
    During the first session of the 116th Congress, no laws with PAYGO 
effects were enacted with emergency requirements under section 4(g) of 
the PAYGO Act, 2 U.S.C. 933(g). Six laws had estimated budgetary 
effects on direct spending and/or revenues that were excluded from the 
calculations of the PAYGO scorecards due to provisions excluding all or 
part of the law from section 4(d) of the PAYGO Act, 2 U.S.C. 933(d).

I. PAYGO Legislation With Budgetary Effects

    PAYGO legislation is authorizing legislation that affects direct 
spending or revenues, and appropriations legislation that affects 
direct spending in the years after the budget year or affects revenues 
in any year.\2\ For a more complete description of the Statutory PAYGO 
Act, see Chapter 11, ``Budget Concepts,'' of the Analytical 
Perspectives volume of the 2020 President's Budget, found on the 
website of the U.S. Government Printing Office (https://www.govinfo.gov/content/pkg/BUDGET-2020-PER/pdf/BUDGET-2020-PER.pdf).
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    \2\ Provisions in appropriations acts that affect direct 
spending in the years after the budget year (also known as 
``outyears'') or affect revenues in any year are considered to be 
budgetary effects for the purposes of the PAYGO scorecards except if 
the provisions produce outlay changes that net to zero over the 
current year, budget year, and the four subsequent years. As 
specified in section 3 of the PAYGO Act, off-budget effects are not 
counted as budgetary effects. Off-budget effects refer to effects on 
the Social Security trust funds (Old-Age and Survivors Insurance and 
Disability Insurance) and the Postal Service.
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    This PAYGO Act's requirement of deficit neutrality is based on two 
cumulative scorecards that tally the cumulative budgetary effects of 
PAYGO legislation as averaged over rolling 5- and 10-year periods 
starting with the budget year. The 5-year and 10-year PAYGO scorecards 
for each congressional session begin with the balances of costs or 
savings carried over from previous sessions and then tally the costs or 
savings of PAYGO laws enacted in the most recent session. The 5-year 
PAYGO scorecard for the first session of the 116th Congress began with 
balances of costs of $3,293 million in 2020 and $1,646 million in 2021 
through 2023. Added to those balances were the budgetary effects of 
PAYGO legislation through Public Law 116-36. Section 102 of Public Law 
116-37 eliminated those balances, resetting each year of the scorecards 
to zero. The completed 5-year scorecard for the session shows that 
PAYGO legislation enacted during the session was estimated to have 
PAYGO budgetary effects that increased the deficit by an average of 
$514 million each year from 2020 through 2024.\3\ Section 1801 of 
Public Law 116-69 deducted the costs from the scorecard in 2020 and 
added those costs to the scorecard in 2021. Therefore, the 2020 column 
of the scorecard is zero and the 2021 column reflects a debit of $1,028 
million.
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    \3\ As provided in section 4(d) of the PAYGO Act, 2 U.S.C. 
933(d), budgetary effects on the PAYGO scorecards are based on 
congressional estimates for bills including a reference to a 
congressional estimate in the Congressional Record, and for which 
such a reference is indeed present in the Record. Absent such a 
congressional cost estimate, OMB is required to use its own estimate 
for the scorecard. Eleven of the bills enacted during this session 
had such a congressional estimate and therefore OMB was required to 
provide an estimate for the remaining PAYGO laws enacted during the 
session.
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    The 10-year PAYGO scorecard for the first session of the 116th 
Congress began with balances of costs of $2,064 million in 2020 and 
$1,032 million in 2021 through 2028. Added to those balances were the 
budgetary effects of PAYGO legislation through Public Law 116-36. 
Section 102 of Public Law 116-37 eliminated those balances. The 
completed 10-year scorecard for the session shows that PAYGO 
legislation for the session increased the deficit by an average of $657 
million each year from 2020 through 2029. Section 1801 of Public Law 
116-69 deducted the costs from the scorecard in 2020 and added those 
costs to the scorecard in 2021. Therefore, the 2020 column of the

[[Page 4720]]

scorecard is zero and the 2021 column reflects a debit of $1,314 
million.
    In the first session of the 116th Congress, 33 laws were enacted 
that were determined to constitute PAYGO legislation. Of the 33 enacted 
PAYGO laws, 14 laws were estimated to have PAYGO budgetary effects 
(costs or savings) in excess of $500,000 over one or both of the 5-year 
or 10-year PAYGO windows. These were:
     Medicaid Extenders Act of 2019, Public Law 116-3;
     Consolidated Appropriations Act, 2019, Public Law 116-6;
     Pesticide Registration Improvement Extension Act of 2018; 
Public Law 116-8;
     John D. Dingell, Jr. Conservation, Management, and 
Recreation Act, Public Law 116-9;
     Medicaid Services Investment and Accountability Act of 
2019, Public Law 116-16;
     Additional Supplemental Appropriations for Disaster Relief 
Act, 2019, Public Law 116-20;
     Blue Water Navy Vietnam Veterans Act of 2019, Public Law 
116-23;
     Taxpayer First Act, Public Law 116-25;
     To provide for a 2-week extension of the Medicaid 
community mental health services demonstration program, and for other 
purposes, Public Law 116-29;
     Sustaining Excellence in Medicaid Act of 2019, Public Law 
116-39;
     Fostering Undergraduate Talent by Unlocking Resources for 
Education Act, Public Law 116-91;
     National Defense Authorization Act for Fiscal Year 2020, 
Public Law 116-92;
     Consolidated Appropriations Act, 2020, Public Law 116-93; 
and
     Further Consolidated Appropriations Act, 2020, Public Law 
116-94.
    In addition to the laws identified above, 19 laws enacted in this 
session were estimated to have negligible budgetary effects on the 
PAYGO scorecards--costs or savings of less than $500,000 over both the 
5-year and 10-year PAYGO windows.

II. Budgetary Effects Excluded From the Scorecard Balances

    Six laws enacted in the first session of the 116th Congress had 
estimated budgetary effects on direct spending and revenues that were 
excluded from the calculations for the PAYGO scorecards due to 
provisions in law excluding all or part of the law from section 4(d) of 
the PAYGO Act. Two laws were excluded entirely from the scorecards:
     Never Forget the Heroes: James Zadroga, Ray Pfeifer, and 
Luis Alvarez Permanent Authorization of the September 11th Victim 
Compensation Fund Act, Public Law 116-34; and
     Bipartisan Budget Act of 2019, Public Law 116-37.
    In addition, budgetary effects in four laws were excluded by 
provisions excluding certain portions of those laws from the 
scorecards:
     Consolidated Appropriations Act, 2019, Public Law 116-6;
     Continuing Appropriations Act, 2020, and Health Extenders 
Act of 2019, Public Law 116-59;
     Further Continuing Appropriations Act, 2020, and Further 
Health Extenders Act of 2019, Public Law 116-69; and
     Further Consolidated Appropriations Act, 2020, Public Law 
116-94.

III. PAYGO Scorecards

                                                           Statutory Pay-as-You-Go Scorecards
                                        [In millions of dollars; negative amounts portray decreases in deficits]
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                                                 2020       2021       2022       2023       2024
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First Session of the 116th Congress.......        408        408        408        408        408
Balances from Previous Sessions...........      3,293      1,646      1,646      1,646          0
Elimination of balances pursuant to Sec.       -3,187     -1,540     -1,540     -1,540        106
 102 of Public Law 116-37.................
Deduction of the budget year debit               -514        514          0          0          0
 pursuant to Sec. 1801 of Public Law 116-
 69.......................................
5-year PAYGO Scorecard....................          0      1,028        514        514        514
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                                                 2020       2021       2022       2023       2024       2025       2026       2027       2028       2029
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First Session of the 116th Congress.......        396        396        396        396        396        396        396        396        396        396
Balances from Previous Sessions...........      2,064      1,032      1,032      1,032      1,032      1,032      1,032      1,032      1,032          0
Elimination of balances pursuant to Sec.       -1,803       -771       -771       -771       -771       -771       -771       -771       -771        261
 102 of Public Law 116-37.................
Deduction of the budget year debit               -657        657          0          0          0          0          0          0          0          0
 pursuant to Sec. 1801 of Public Law 116-
 69.......................................
10-year PAYGO Scorecard...................          0      1,314        657        657        657        657        657        657        657        657
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IV. Legislative Revisions to the PAYGO Scorecards

    Two laws were enacted prior to issuance of this report that 
required direct adjustments to the totals on the PAYGO scorecards.

A. Elimination of Balances

    Section 102 of Public Law 116-37, the Bipartisan Budget Act of 2019 
(BBA), includes a provision that states, ``Effective on the date of 
enactment of this Act, the balances on the PAYGO scorecards established 
pursuant to paragraphs (4) and (5) of section 4(d) of the Statutory 
Pay-As-You-Go Act of 2010 (2 U.S.C. 933(d)) shall be zero.'' 
Accordingly, these scorecards show the removal of the balances on the 
scorecards from laws enacted prior to the BBA.

B. Deduction of Budget Year Debit From the 5- and 10-Year Scorecards

    Section 1801 of Public Law 116-69, Further Continuing 
Appropriations Act, 2020, and Further Health Extenders Act of 2019, 
includes a provision that states, ``For the purposes of the annual 
report issued pursuant to section 5 of the Statutory Pay-As-You-Go Act 
of 2010 (2 U.S.C. 934) after adjournment of the first session of the 
116th Congress, and for determining whether a sequestration order is 
necessary under such section, the debit for the budget year on the 5-
year scorecard, if any, and the 10-year scorecard, if any, shall be 
deducted from such scorecard in 2020 and added to such scorecard in 
2021.'' Accordingly, both the 5- and 10-year scorecards deduct the 
debit from 2020 and add that debit to 2021.

V. Sequestration Order

    As shown on the scorecards, the budgetary effects of PAYGO 
legislation enacted in the first session of the 116th

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Congress, combined with section 102 of Public Law 116-37 and section 
1801 of Public Law 116-69, resulted in zero costs on both the 5-year 
and the 10-year scorecard in the budget year, which is 2020 for the 
purposes of this Report. Because the costs for the budget year, as 
shown on the scorecards, were deducted from the budget year and added 
to the subsequent year, there is no ``debit'' on either scorecard under 
section 3 of the PAYGO Act, 2 U.S.C. 932, and there is no need for a 
sequestration order.\4\
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    \4\ Joint Committee reductions for 2020 were calculated and 
ordered in a separate report and are not affected by this 
determination. See: https://www.whitehouse.gov/wp-content/uploads/2019/03/2020_JC_Sequestration_Report_3-18-19.pdf.
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    The totals shown in 2021 through 2029 will remain on the scorecards 
that are used to record the budgetary effects of PAYGO legislation 
enacted in the second session of the 116th Congress, and will be used 
in determining whether a sequestration order will be necessary in the 
future. On the 5-year scorecard for the second session of the 116th 
Congress, 2021 through 2024 will show balances of costs. On the 10-year 
scorecard, 2021 through 2029 will show balances of costs.

[FR Doc. 2020-01290 Filed 1-24-20; 8:45 am]
 BILLING CODE 3110-01-P