S. 2090

119th CONGRESS 1st Session

To improve the budget process.

IN THE SENATE OF THE UNITED STATES · June 17, 2025 · Sponsor: Mr. Marshall · Committee: Committee on the Budget

Sec. 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 () is amended— 2 U.S.C. 653
    • by striking and inserting the following:
      • (a) In general
        • The Director
    • in the undesignated matter following subsection (a)(3), as so designated, by striking and inserting the following:
      • (b) Inclusion in reports
        • The estimates
    • 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—
          • 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);
          • any update of a model or routine described in paragraph (1);
          • 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
          • for any data that is required not to be disclosed by the Congressional Budget Office—
            • a complete list of all data variables for such data;
            • 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;
            • a reference to the statute requiring that the data not be disclosed; and
            • 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:
  • Interim period
    • (j)
      • 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 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.
        • The legal basis for each activity described in subparagraph (A).
        • 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).
        • For each activity described in subparagraph (A), 1 or more measures of cost efficiency and effectiveness.
      • 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 (), the Medicare program under title XVIII of the Social Security Act (), or the Medicaid program under title XIX of the Social Security Act (). 42 U.S.C. 401 et seq.; 42 U.S.C. 1395 et seq.; 42 U.S.C. 1396 et seq.
      • 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 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:
    • In general
      • 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.
      • The legal basis for each activity described in subparagraph (A).
      • 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).
      • 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 () is amended to read as follows: 2 U.S.C. 631
  • In general
    • (a) In General
      • Except as provided by subsection (b), the timetable with respect to the congressional budget process for any Congress is as follows:
    • (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):
• (b) Conforming amendments
  • Section 202(e)(1) of the Congressional Budget Act of 1974 () is amended by striking On or before February 15and inserting Not later than January 15 (or, if applicable, under section 300(b), February 15). 2 U.S.C. 602(e)(1)

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 () is amended by striking each yearand inserting biennially. 2 U.S.C. 621(2)
• (b) Definitions
  • Section 3(4) of such Act () is amended by striking each place it appears and inserting biennium. 2 U.S.C. 622(4)
  • Section 3 of such Act () is further amended by adding at the end the following new paragraph: 2 U.S.C. 622
• (c) Biennial concurrent resolution on the budget
  • (1) Section heading
    • The section heading of section 301 of such Act () is amended by striking and inserting . 2 U.S.C. 632
  • (2) Contents of resolution
    • Section 301(a) of such Act () is amended— 2 U.S.C. 632(a)
      • in the matter preceding paragraph (1) by—
        • (i) striking April 15 of each yearand inserting March 15 (or, if applicable under section 300(b), April 15) of each odd-numbered year;
        • (ii) striking the first place it appears and inserting the biennium beginning on October 1 of such year; and
        • (iii) striking the second place it appears and inserting each fiscal year in such period;
      • in paragraph (6), by striking for the fiscal yearand inserting for each fiscal year in the biennium; and
      • in paragraph (7), by striking for the fiscal yearand inserting for each fiscal year in the biennium.
  • (3) Additional matters
    • Section 301(b)(3) of such Act () is amended by striking for such fiscal yearand inserting for either fiscal year in such biennium. 2 U.S.C. 632(b)(3)
  • (4) Views of other committees
    • Section 301(d) of such Act () is amended by striking Within 6 weeks after the President submits a budget under section 1105(a) of title 31, United States Codeand inserting Not later than February 1 (or, if applicable under section 300(b), March 15) of each odd-numbered year. 2 U.S.C. 632(d)
  • (5) Hearings
    • Section 301(e)(1) of such Act () is amended by— 2 U.S.C. 632(e)(1)
      • striking fiscal yearand inserting biennium; and
      • inserting after the second sentence the following: .
  • (6) Goals for reducing unemployment
    • Section 301(f) of such Act () is amended by striking each place it appears and inserting biennium. 2 U.S.C. 632(f)
  • (7) Economic assumptions
    • Section 301(g)(1) of such Act () is amended by striking for a fiscal yearand inserting for a biennium. 2 U.S.C. 632(g)(1)
  • (8) Table of contents
    • Sec. 301. Biennial adoption of concurrent resolution on the budget.
    • Sec. 301. Biennial adoption of concurrent resolution on the budget.
    • 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:
• (d) Committee allocations
  • Section 302 of such Act () is amended— 2 U.S.C. 633
    • in subsection (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 yearsand inserting for all fiscal years covered by the resolution; and
        • (iii) striking for the fiscal year of that resolutionand inserting for each fiscal year in the biennium; and
      • in paragraph (5)(A), by striking April 15and inserting March 15 (or, if applicable under section 300(b), April 15) of an odd-numbered year;
    • in subsection (b), by striking budget yearand inserting biennium;
    • in subsection (c) by striking each place it appears and inserting for each fiscal year in the biennium;
    • in subsection (f)—
      • in paragraph (1)—
        • (i) in the matter preceding subparagraph (A), by striking for a fiscal yearand inserting for a biennium; and
        • (ii) in matter following subparagraph (C), by striking the first fiscal yearand inserting either fiscal year of the biennium; and
      • in paragraph (2)(A)—
        • (i) by striking the first fiscal yearand inserting each fiscal year of the biennium; and
        • (ii) by striking the total of fiscal yearsand inserting the total of all fiscal years covered by the resolution; and
    • in subsection (g)(1)(A), by striking April 15and inserting March 15 (or, if applicable under section 300(b), April 15) of an odd-numbered year.
• (e) Section 303 point of order
  • (1) In general
    • Section 303(a) of such Act () is amended by— 2 U.S.C. 634(a)
      • striking for a fiscal yearand inserting for a biennium;
      • striking the first fiscal yearand inserting either fiscal year of the biennium; and
      • striking each place it appears and inserting that biennium.
  • (2) Exceptions in the House
    • Section 303(b) of such Act () is amended— 2 U.S.C. 634(b)
      • in paragraph (1)—
        • (i) in subparagraph (A), by striking the budget yearand inserting the biennium; and
        • (ii) in subparagraph (B), by striking the fiscal yearand inserting the biennium; and
      • in paragraph (2), by striking May 15and inserting March 16 (or, if applicable under section 300(b), April 16).
  • (3) Application to the Senate
    • Section 303(c)(1) of such Act () is amended by— 2 U.S.C. 634(c)(1)
      • striking fiscal yearand inserting biennium; and
      • striking that yearand inserting each fiscal year of that biennium.
• (f) Permissible revisions of concurrent resolutions on the budget
  • Section 304 of such Act () is amended— 2 U.S.C. 635
    • by striking the first two places it appears and inserting biennium;
    • by striking for such fiscal yearand inserting for such biennium; and
    • by inserting after .
• (g) Procedures for consideration of budget resolutions
  • Section 305 of such Act () is amended— 2 U.S.C. 636
    • in subsection (a)(3), by striking fiscal yearand inserting biennium; and
    • in subsection (b)(3), by striking fiscal yearand inserting biennium.
• (h) Completion of House committee action on appropriation bills
  • (1) In general
    • Section 307 of such Act () is amended— 2 U.S.C. 638
    • In general
      • in the section heading, by striking and inserting ;
      • by striking June 10 of each yearand inserting April 10 (or, if applicable under section 300(b), May 10) of each odd-numbered year;
      • by striking annualand inserting biennial;
      • by striking fiscal yearand inserting biennium; and
      • by striking that yearand inserting that odd-numbered year.
  • (2) Conforming amendment
    • Sec. 307. House committee action on all appropriation bills to be completed by April 10.
    • Sec. 307. House committee action on all appropriation bills to be completed by April 10.
    • The table of contents set forth in section 1(b) of such Act is amended by striking the item relating to section 307 and inserting the following:
• (i) Completion of action on regular appropriation bills
  • Section 309 of such Act () is amended— 2 U.S.C. 640
    • by inserting after ;
    • by striking annualand inserting biennial;
    • by striking fiscal yearand inserting biennium; and
    • by striking such yearand inserting such odd-numbered year.
• (j) Reconciliation process
  • Section 310(a) of such Act () is amended— 2 U.S.C. 641(a)
    • in the matter preceding paragraph (1), by striking A concurrentand all that follows through and inserting shall; and
    • in paragraph (1)—
      • in subparagraph (A), by striking for such fiscal yearand inserting for each fiscal year of the biennium;
      • in subparagraph (C), by striking such fiscal yearand inserting each fiscal year of the biennium; and
      • in subparagraph (D), by striking such fiscal yearand inserting each fiscal year of the biennium.
• (k) Section 311 point of order
  • (1) In the House
    • Section 311(a)(1) of such Act () is amended— 2 U.S.C. 642(a)(1)
      • by striking for a fiscal yearand inserting for a biennium;
      • by striking each place it appears and inserting either fiscal year of the biennium; and
      • by striking that first fiscal yearand inserting each fiscal year in the biennium.
  • (2) In the Senate
    • Section 311(a)(2) of such Act () is amended— 2 U.S.C. 642(a)(2)
      • in subparagraph (A), by striking for the first fiscal yearand inserting for either fiscal year of the biennium; and
      • in subparagraph (B)—
        • (i) by striking the first place it appears and inserting either fiscal year in the biennium; and
        • (ii) by striking that first fiscal year and the ensuing fiscal yearsand inserting all fiscal years.
  • (3) Social security levels
    • Section 311(a)(3) of such Act () is amended by— 2 U.S.C. 642(a)(3)
      • striking for the first fiscal yearand inserting for each fiscal year in the biennium; and
      • striking that fiscal year and the ensuing fiscal yearsand inserting all fiscal years.
• (l) MDA point of order
  • Section 312(c) of such Act () is amended— 2 U.S.C. 643(c)
    • by striking for a fiscal yearand inserting for a biennium;
    • in paragraph (1), by striking the first fiscal yearand inserting either fiscal year in the biennium;
    • in paragraph (2), by striking that fiscal yearand inserting either fiscal year in the biennium; and
    • in the matter following paragraph (2), by striking that fiscal yearand inserting the applicable fiscal year.

Sec. 303. Amendments to title 31, United States Code.

• (a) Definition
  • has the meaning given that term in paragraph (12) of section 3 of the Congressional Budget and Impoundment Control Act of 1974 (). biennium 2 U.S.C. 622
  • Section 1101 of title 31, United States Code, is amended by adding at the end the following:
• (b) Budget contents and submission to the congress
  • (1) Schedule
    • On or before the first day on which Congress is in session (or, if applicable under section 300(b) of the Congressional Budget Act of 1974, the first Monday in February) of each odd-numbered year, the President shall transmit to the Congress, the budget for the biennium beginning on October 1 of such calendar year. The budget of the United States Government transmitted under this subsection shall include a budget message and summary and supporting information. The President shall include in each budget the following:
    • The matter preceding paragraph (1) in section 1105(a) of title 31, United States Code, is amended to read as follows:
  • (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 yearand 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 yearand 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 yearand 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 yearand inserting each fiscal year in the biennium; and
      • in subparagraph (B), by striking after that yearand inserting after that biennium.
  • (6) Allowances
    • Section 1105(a)(13) of title 31, United States Code, is amended by striking the fiscal yearand 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 yearand 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 yearand inserting each fiscal year in the biennium.
  • (9) Future years
    • Section 1105(a)(17) of title 31, United States Code, is amended—
      • by striking the fiscal year following the fiscal yearand inserting each fiscal year in the biennium following the biennium;
      • by striking that following fiscal yearand inserting each such fiscal year; and
      • by striking fiscal year before the fiscal yearand inserting biennium before the biennium.
  • (10) Prior year outlays
    • Section 1105(a)(18) of title 31, United States Code, is amended—
      • by striking the prior fiscal yearand inserting each of the two most recently completed fiscal years,;
      • by striking for that yearand inserting with respect to those fiscal years; and
      • by striking in that yearand inserting in those fiscal years.
  • (11) Prior year receipts
    • Section 1105(a)(19) of title 31, United States Code, is amended—
      • by striking the prior fiscal yearand inserting each of the two most recently completed fiscal years;
      • by striking for that yearand inserting with respect to those fiscal years; and
      • by striking each place it appears and inserting in those fiscal years.
  • (12) Homeland security
    • Section 1105(a)(35)(A)(i) of title 31, United States Code, is amended in the matter preceding subclause (I), by striking the fiscal years for which the budget is submittedand inserting each fiscal year in the biennium for which the budget is submitted.
  • (13) EESA
    • Section 1105(a)(36) of title 31, United States Code, is amended in the matter preceding subparagraph (A), by striking the fiscal year for which the budget is submittedand inserting each fiscal year in the biennium for which the budget is submitted.
  • (14) Veterans health
    • Section 1105(a)(37) of title 31, United States Code, is amended by striking the fiscal year for which the budget is submittedand inserting each fiscal year in the biennium for which the budget is submitted.
• (c) Estimated expenditures of legislative and judicial branches
  • Section 1105(b) of title 31, United States Code, is amended by striking each yearand inserting each even-numbered year.
• (d) Recommendations To meet estimated deficiencies
  • Section 1105(c) of title 31, United States Code, is amended—
    • by striking the first place it appears and inserting each fiscal year in the biennium for;
    • by striking the second place it appears and inserting each fiscal year of the biennium, as the case may be, for; and
    • by striking for that yearand 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 yearand inserting biennium to which such budget relates.
• (f) Preparation of budget
  • Section 1105(f) of title 31, United States Code, is amended—
    • by striking for a fiscal yearand inserting for a biennium; and
    • by striking that and subsequentand inserting each fiscal year in such biennium and subsequent.
• (g) Budget justifications
  • (1) Title 31
    • Section 1105(i)(1) of title 31, United States Code, is amended, in the matter preceding subparagraph (A), by striking for each fiscal yearand inserting for each biennium.
  • (2) FFATA
    • Section 3(b)(2)(A)(i) of the Federal Funding Accountability and Transparency Act of 2006 ( note) is amended by striking annualand inserting biennial. 31 U.S.C. 6101
• (h) Supplemental budget estimates and changes
  • (1) In general
    • Section 1106(a) of title 31, United States Code, is amended—
      • in the matter preceding paragraph (1), by—
        • (i) inserting after the following: ; and
        • (ii) striking fiscal yearand inserting biennium;
      • in paragraph (1), by striking that fiscal yearand inserting each fiscal year in such biennium;
      • in paragraph (2), by striking fiscal yearand inserting biennium; and
      • in paragraph (3), by striking fiscal yearand inserting biennium.
  • (2) Changes
    • Section 1106(b) of title 31, United States Code, is amended by—
      • inserting after the following: ;
      • striking the fiscal yearand inserting each fiscal year in the biennium; and
      • striking submitted before July 16and inserting required by this subsection.
• (i) Current programs and activities estimates
  • (1) In general
    • Section 1109(a) of title 31, United States Code, is amended—
      • 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
      • by striking the following fiscal yearand inserting each fiscal year of such biennium.
  • (2) Joint economic committee
    • Section 1109(b) of title 31, United States Code, is amended by striking before March 1 of each yearand inserting within one week of the President’s budget submission for each odd-numbered year (or, if applicable under section 300(b) of the Congressional Budget Act of 1974, not later than February 15 of an odd-numbered year).
• (j) Year-Ahead requests for authorizing legislation
  • Section 1110 of title 31, United States Code, is amended by—
    • striking May 16and inserting March 31; and
    • striking year before the year in which the fiscal year beginsand inserting calendar year preceding the calendar year in which the biennium begins.

Sec. 304. Two-year appropriations; title and style of appropriations Acts.

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

• 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).
• 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.
• For purposes of this section, the term has the same meaning as in section 3(12) of the Congressional Budget and Impoundment Control Act of 1974 (). biennium 2 U.S.C. 622(12)

Sec. 305. Multiyear authorizations.

• (a) In General
  • Title III of the Congressional Budget Act of 1974 () is amended by adding at the end the following: 2 U.S.C. 631 et seq.
    • (a) Point of Order
      • It shall not be in order in the House of Representatives or the Senate to consider—
        • any bill, joint resolution, amendment, motion, amendment between the Houses, or conference report that authorizes appropriations for a period of less than 2 fiscal years, unless the program, project, or activity for which the appropriations are authorized will require no further appropriations and will be completed or terminated after the appropriations have been expended; and
        • 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—
        • any measure that is privileged for consideration pursuant to a rule or statute;
        • any matter considered in Executive Session; or
        • an appropriations measure or reconciliation bill.
• (b) Amendment to table of contents
  • Sec. 316. Authorizations of appropriations.
  • Sec. 316. Authorizations of appropriations.
  • The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 is amended by inserting after the item relating to section 315 the following:

Sec. 306. Government plans on a biennial basis.

• (a) Managerial accountability and flexibility
  • Section 9703 of title 31, United States Code, relating to managerial accountability, is amended—
    • in subsection (a)—
      • in the first sentence by striking ; and
      • by striking section 1105(a)(29)and inserting section 1105(a)(28); and
    • in subsection (e)—
      • in the first sentence by striking ;
      • in the second sentence by striking a subsequent yearand inserting a subsequent 2-year period; and
      • in the third sentence by striking and inserting .
• (b) Performance plans
  • Section 2803(a) of title 39, United States Code, is amended—
    • in the matter preceding paragraph (1), by striking an annualand inserting a biennial;
    • in paragraph (1), by inserting after ;
    • in paragraph (5), by striking after the semicolon;
    • in paragraph (6), by striking the period and inserting ; and; and
      • cover a 2-year period beginning with the first fiscal year of the next biennial budget cycle.
    • by adding after paragraph (6) the following:
• (c) Effective date
  • (1) In general
    • The amendments made by this section shall take effect on March 1, 2026.
  • (2) Agency actions
    • Effective on and after the date of enactment of this Act, each agency shall take such actions as necessary to prepare and submit any plan or report in accordance with the amendments made by this Act.

Sec. 307. Biennial appropriations bills.

• (a) In General
  • Title III of the Congressional Budget Act of 1974 (), as amended by section 305(a), is amended by adding at the end the following: 2 U.S.C. 631 et seq.
    • 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
  • Sec. 317. Consideration of biennial appropriations bills.
  • Sec. 317. Consideration of biennial appropriations bills.
  • The table of contents in section 1(b) of the Congressional Budget and Impoundment Control Act of 1974 is amended by inserting after the item relating to section 316, as added by section 305(b) the following:

Subtitle B—Compliance

Sec. 321. Limitation on use of Federal funds for political employee official travel if President’s budget is late.

Section 1105 of title 31, United States Code, as amended by section 201 of this Act, is amended by adding at the end the following:

• (k)
  • In this subsection—
    • the term covered period means the period—
      • (i) beginning on—
      • the day after the first day on which Congress is in session during any odd-numbered year, if the budget under subsection (a) for the next biennium was not submitted to Congress on or before such first day in session; or
      • if applicable under section 300(b) of the Congressional Budget Act of 1974 (), the day after the first Monday in February of 2029, or any odd-numbered year thereafter, if the budget under subsection (a) for the next biennium was not submitted to Congress on or before such first Monday; and 2 U.S.C. 631(b)
      • (ii) ending on the date on which the budget is submitted; and
    • the term political employee means any individual—
      • (i) occupying a position described under sections 5312 through 5316 of title 5 (relating to the Executive Schedule);
      • (ii) serving under a noncareer appointment in the Senior Executive Service, as defined under paragraph (7) of section 3132(a) of such title; or
      • (iii) occupying a position in the executive branch of the Government of a confidential or policy-determining character under schedule C of subpart C of part 213 of title 5, Code of Federal Regulations.
  • Except as provided in paragraph (3), during a covered period no Federal funds may be obligated or expended for official travel by a political employee.
  • (3)
    • If a political employee is away from the seat of Government on the first day of a covered period, Federal funds may be obligated and expended for official travel for a single return trip to the seat of Government by the political employee.
    • Federal funds may be obligated and expended for official travel by a political employee during a covered period from one location in the National Capital Region to another location in the National Capital Region.
    • If a national security event that triggers a continuity of operations or continuity of Government protocol occurs during a covered period, Federal funds may be obligated and expended for official travel by a political employee that relates to responding to the national security event or implementing the continuity of operations or continuity of Government protocol.

Sec. 322. Limitation on use of Federal funds for presidential travel expenses if President’s budget is late.

Section 1105 of title 31, United States Code, as amended by section 321 of this Act, is amended by adding at the end the following:

• (l)
  • In this subsection—
    • the term covered period has the meaning given that term in subsection (k)(1); and
    • the term includes amounts made available for— Federal funds
      • (i) the expense allowance of the President under section 102 of title 3;
      • (ii) travel expenses of the President under section 103 of title 3;
      • (iii) entertainment expenses of the President under section 105(d)(3) of title 3; and
      • (iv) subsistence expenses in connection with the travel of the President in section 105(d)(4) of title 3.
  • Except as provided in paragraph (3), during a covered period no Federal funds may be obligated or expended for the cost of travel by the President.
  • (3)
    • If the President is away from the seat of Government on the first day of a covered period, Federal funds may be obligated and expended for official travel for a single return trip to the seat of Government by the President.
    • Federal funds may be obligated and expended for official travel by the President during a covered period from one location in the National Capital Region to another location in the National Capital Region.
    • If a national security event that triggers a continuity of operations or continuity of Government protocol occurs during a covered period, Federal funds may be obligated and expended for official travel by the President that relates to responding to the national security event or implementing the continuity of operations or continuity of Government protocol.

Sec. 323. Submission of the National Security Strategy and the budget of the President before the President may address a joint session of Congress.

• (a) Definitions
  • In this section—
  • Definitions
    • the term has the same meaning as in section 3(12) of the Congressional Budget and Impoundment Control Act of 1974 (); biennium 2 U.S.C. 622(12)
    • the term National Security Strategy means the report described in section 108 of the National Security Act of 1947 (); and 50 U.S.C. 3043
    • the term President’s Budget Request means the materials that are described in section 1105 of title 31, United States Code, and are required to be submitted to Congress on or before the first day on which Congress is in session during an odd-numbered year under subsection (a) section 300 of the Congressional Budget Act of 1974 (), as amended by this Act (or, if applicable under subsection (b) of such section, the first Monday in February). 2 U.S.C. 631
• (b) Addressing a joint session of Congress To follow the budget and security submissions
  • (1) Statement of policy
    • Except as provided in paragraph (2), neither the leadership of the Senate nor the leadership of the House of Representatives may invite the President to address a joint session of Congress until the President has transmitted, and Congress has received, the National Security Strategy and the President’s Budget Request for the next biennium.
  • (2) National security event exception
    • Notwithstanding a failure to transmit the National Security Strategy and the President’s Budget Request for the subsequent fiscal year, if a national security event that triggers a continuity of operations or continuity of Government protocol occurs, the leadership of the Senate or the leadership of the House of Representatives may invite the President to address a joint session of Congress.
  • (3) Conforming amendment
    • Section 300 of the Congressional Budget Act of 1974 (), as amended by section 301 of this Act, is amended— 2 U.S.C. 631
      • in subsection (a), in the table by striking the item relating to the first day of session and inserting the following:
      • in subsection (b), in the table by striking the item relating to the first Monday in February and inserting the following:

Sec. 324. No budget, no travel.

• (a) In general
  • Section 300 of the Congressional Budget Act of 1974 (), as amended by section 301 of this Act, is amended by adding at the end the following: 2 U.S.C. 631
  • In general
    • (c) No budget, no travel
      • (1) Definition
        • In this subsection, the term Member of Congress means a member of the Senate or the House of Representatives, a Delegate to the House of Representatives, and the Resident Commissioner from Puerto Rico.
        • Definition
      • (2) Prohibition
        • If either House of Congress, or the Congress, fails to comply with any action by the deadline specified under subsection (a) or subsection (b), as applicable, during the period beginning on the day after the date of the applicable deadline, and ending on the date on which the action is completed, no Federal funds may be obligated or expended for travel by a Member of the applicable House of Congress.

Subtitle C—Effective date

Sec. 341. Effective date.

Except as provided in section 306, this title and the amendments made by this title shall take effect on January 1, 2027, and shall apply to budget recommendations, budget resolutions, and appropriations for the biennium beginning with fiscal year 2028, and each biennium thereafter.

TITLE IV—Senate rules reforms

Sec. 401. Setting the threshold to waive points of order at two-thirds.

• (a) Congressional Budget Act of 1974
  • Section 904 of the Congressional Budget Act of 1974 ( note) is amended by striking subsections (c), (d), and (e) and inserting the following: 2 U.S.C. 621
  • Congressional Budget Act of 1974
    • (c) Waivers
      • Sections 301(i), 302(c), 302(f), 305(b)(2), 305(c)(4), 306, 310(d)(2), 310(g), 311(a), 312(b), 312(c), 313, 314(e), 314(f), 316, 317, 904(c), and 904(d) of this Act and sections 258(a)(4)(C), 258A(b)(3)(C)(i), 258B(f)(1), 258B(h)(1), 258B(h)(3), 258C(a)(5), and 258C(b)(1) of the Balanced Budget and Emergency Deficit Control Act of 1985 may be waived or suspended in the Senate only by the affirmative vote of two-thirds of the Members, duly chosen and sworn.
    • (d) Appeals
      • Appeals
      • (1) Procedure
        • Appeals in the Senate from the decisions of the Chair relating to any provision of title III or IV or section 1017 shall, except as otherwise provided therein, be limited to 1 hour, to be equally divided between, and controlled by, the mover and the manager of the resolution, concurrent resolution, reconciliation bill, or rescission bill, as the case may be.
      • (2) Vote threshold
        • An affirmative vote of two-thirds of the Members, duly chosen and sworn, shall be required in the Senate to sustain an appeal of the ruling of the Chair on a point of order raised under sections 301(i), 302(c), 302(f), 305(b)(2), 305(c)(4), 306, 310(d)(2), 310(g), 311(a), 312(b), 312(c), 313, 314(e), 314(f), 316, 317, 904(c), and 904(d) of this Act and sections 258(a)(4)(C), 258A(b)(3)(C)(i), 258B(f)(1), 258B(h)(1), 258B(h)(3), 258C(a)(5), and 258C(b)(1) of the Balanced Budget and Emergency Deficit Control Act of 1985.
• (b) Statutory PAYGO
  • Section 4(g)(3)(B) of the Statutory Pay-As-You-Go Act () is amended by striking each place it appears and inserting two-thirds. 2 U.S.C. 933(g)(3)(B)(i)
• (c) Budget resolutions
  • (1) CHIMPs with Net Costs
    • Section 314(d) of Senate Concurrent Resolution 70 (110th Congress), agreed to on June 5, 2008, is amended by striking each place it appears and inserting two-thirds.
  • (2) Short-term deficits
    • Section 404(b) of Senate Concurrent Resolution 13 (111th Congress), agreed to on April 29, 2009, is amended by striking each place it appears and inserting two-thirds.
  • (3) Long-term deficits
    • Section 3101(c) of Senate Concurrent Resolution 11 (114th Congress), agreed to on May 6, 2015, is amended by striking each place it appears and inserting two-thirds.
  • (4) Senate PAYGO
    • Section 4106(b) of House Concurrent Resolution 71 (115th Congress), agreed to on October 26, 2017, is amended by striking each place it appears and inserting two-thirds.
  • (5) Advance appropriations
    • Section 123(a)(3) of division A of the Fiscal Responsibility Act of 2023 (; 137 Stat. 21), is amended by striking each place it appears and inserting two-thirds. Public Law 118–5

Sec. 402. Surgical strike point of order relating to legislation dealing with the congressional budget.

Section 306(a) of the Congressional Budget Act of 1974 () is amended to read as follows: 2 U.S.C. 637(a)

• (a) In the Senate
  • (1) Point of order
    • In the Senate, it shall not be in order to consider a provision in a bill, joint resolution, motion, amendment, amendment between the Houses, or conference report containing any matter which is within the jurisdiction of the Committee on the Budget of the Senate unless the provision is in—
      • a bill or joint resolution which has been reported by the Committee on the Budget of the Senate (or from the consideration of which such committee has been discharged); or
      • an amendment to, amendment between the Houses in relation to, conference report on, or motion on a bill or joint resolution described in subparagraph (A).
  • (2) Point of order sustained
    • If a point of order is made by a Senator against a provision described in paragraph (1), and the point of order is sustained by the Chair, that provision shall be stricken from the measure and may not be offered as an amendment from the floor.
  • (3) Form of the point of order
    • A point of order under paragraph (1) may be raised by a Senator as provided in section 313(e).
  • (4) Conference reports
    • When the Senate is considering a conference report on, or an amendment between the Houses in relation to, a bill or joint resolution, upon a point of order being made by any Senator pursuant to paragraph (1), and such point of order being sustained, such material contained in such conference report or House amendment shall be stricken, and the Senate shall proceed to consider the question of whether the Senate shall recede from its amendment and concur with a further amendment, or concur in the House amendment with a further amendment, as the case may be, which further amendment shall consist of only that portion of the conference report or House amendment, as the case may be, not so stricken. In the Senate, debate on any such motion, and any debatable motions and appeals in connection therewith, shall be limited to 1 hour. In any case in which such point of order is sustained against a conference report (or Senate amendment derived from such conference report by operation of this paragraph), no further amendment shall be in order.

TITLE V—Other matters

Sec. 501. Changes in the baseline.

• (a) In general
  • Section 257 of the Balanced Budget and Emergency Deficit Control Act of 1985 () is amended— 2 U.S.C. 907
    • (a) In general
      • For any biennium, the baseline refers to a projection, based on current laws and the assumption of continuation of current levels of discretionary appropriations, of current-year levels of new budget authority, outlays, revenues, and the surplus or deficit into each fiscal year of the biennium and the outyears based on laws enacted through the applicable date.
    • by striking subsection (a) and inserting the following:
    • in subsection (b)—
      • (1) In general
        • Laws providing or creating direct spending and receipts are assumed to operate in the manner specified in those laws for each such year.
      • by striking paragraph (1) and inserting the following:
      • by striking paragraph (2); and
      • by redesignating paragraph (3) as paragraph (2); and
    • in subsection (c)—
      • in paragraph (1), in the second sentence, by striking current yearand all that follows through the period at the end and inserting current year, excluding resources designated as an emergency requirement and any resources provided in supplemental appropriation laws.;
      • by striking paragraphs (2), (3), (4), and (5);
      • by redesignating paragraph (6) as paragraph (2); and
        • (3) No adjustment for inflation
          • No adjustment shall be made for inflation or for any other factor.
      • by adding at the end the following:
• (b) Conforming amendments
  • Section 202(e)(1) of the Congressional Budget Act of 1974 () is amended— 2 U.S.C. 602(e)(1)
    • by inserting before ; and
    • by striking and all that follows through .
  • Section 403(a)(3) of the Social Security Act () is amended— 42 U.S.C. 603(a)(3)
    • by striking subparagraph (G); and
    • by redesignating subparagraph (H) as subparagraph (G).
• (c) Effective date
  • This section and the amendments made by this section shall take effect on January 1, 2027, and shall apply to any baseline projection for the biennium beginning with fiscal year 2028, and each biennium thereafter.