[Congressional Bills 119th Congress]
[From the U.S. Government Publishing Office]
[S. 2090 Introduced in Senate (IS)]
<DOC>
119th CONGRESS
1st Session
S. 2090
To improve the budget process.
_______________________________________________________________________
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.
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 ``Budget Reform Act of 2025''.
SEC. 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.
TITLE I--CONGRESSIONAL BUDGET OFFICE REFORMS
SEC. 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.
TITLE II--ZERO-BASED BUDGETING
SEC. 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.
TITLE III--BIENNIAL BUDGET TIMETABLE REFORMS
Subtitle A--Biennial Budgeting and Appropriations
SEC. 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:
``timetable
``Sec. 300. (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 Congressional Budget Office submits report to the Committee on the
budget recommendations. 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 Congressional Budget Office submits report to the Committee on the
review. 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)''.
SEC. 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