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bility of alternative ways of dealing with the problem; the program's relationship with similar program and an examination of related pending and proposed legislation and private efforts; and whether the program will help or hinder any private efforts to solve the problem.

PILOT TESTING

Title IV requires consideration of at least two-year pilot testing of every proposed major program. This will provide a better estimate of costs and would permit a complete evaluation before national implementation.

Today, many Federal programs are no longer forecast in thousands, but rather in billions of dollars. Authorizations and appropriations run for many years.

Congress must introduce objectivity in determining which projects are best served through Federal tax money.

Pilot testing is to be conducted under conditions similar to those if the program were enacted. Multiple pilot testing is encouraged and the testing is to be monitored by the Comptroller General of the United States.

Each committee in both Houses, after holding public hearings with a thorough evaluation, is to submit a report on the results of the pilot test. The report shall include (but is not limited to): the suitability of implementing the program on a national scale; a cost-benefit analysis; and in the event the program would change a current method of dealing with a specific problem, a comparison of the current method and the method used in the test to carry out the program.

Requirement of Annual Appropriations

Title V provides that all Federal expenditures including those made by the trust funds-must be appropriated annually by Congress. Currently there are over 800 Federal trust funds with a permanent budgeting authority that do not come under a thorough annual appropriations review.

Payment of interest on the national debt and refund overpayments of taxes are exempted. Appropriation acts may stipulate that funds made available for a fiscal year can remain available until expended.

Mr. President, the five points contained in this bill that I am introducing today will bring about long needed reform in the budgetary process. This bill permits Congressional control over Federal expenditures and at the same time permits a re-ordering of national priorities.

93D CONGRESS 1ST SESSION

S. 565

IN THE SENATE OF THE UNITED STATES

JANUARY 26, 1973

Mr. NUNN (for himself and Mr. TALMADGE) introduced the following bill; which was read twice and referred to the Committee on Government Operations

A BILL

To require the Congress to prescribe a ceiling on expenditures for each fiscal year and to establish procedures to effectuate such ceilings.

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Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 3 That this Act may be cited as the "Expenditure Control 4 Act of 1973".

5 SEC. 2. After the submission of the budget of the United 6 States Government by the President for each fiscal year 7 (beginning with the fiscal year ending June 30, 1974), 8 the Congress shall, by law, prescribe a limit on the total 9 amount of outlays (including net lending) to be made by the 10 United States Government during such fiscal year.

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1 SEC. 3. (a) Except as provided in subsection (b), it

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shall not be in order, in either the Senate or the House of 3 Representatives, to consider any bill or joint resolution pro

4 viding new obligational authority for any fiscal year (be

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5 ginning with the fiscal year ending June 30, 1974) prior to the date of the enactment of a law prescribing, pursuant to 7 section 2, a limit on the total amount of outlays to be made 8 by the United States Government during such fiscal year. 9 (b) Subsection (a) shall not apply with respect to 10 any new obligational authority requested by the President 11 if, in submitting the request, the President certifies that a 12 major disaster or other emergency requires the prompt en13 actment of legislation providing such new obligational 14 authority.

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(c) Subsection (a) shall not be construed to preclude 16 the holding of hearings or other consideration by any com17 mittee of the Senate or the House of Representatives, or 18 any joint committee of the two Houses, with respect to pro19 posed new obligational authority, proposed outlays, and 20 estimated revenues set forth in the budget of the United 21 States Government submitted by the President for any fiscal

22 year.

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(d) This section is enacted by the Congress

(1) as an exercise of the rulemaking powers of the Senate and the House of Representatives, respective

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1 ly, and as such they shall be considered as part of the

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rules of each House, respectively, and such rules shall supersede other rules only to the extent that they are

inconsistent therewith; and

(2) with full recognition of the constitutional right of either House to change such rules (so far as relating

to the procedure in such House) at any time, in the same manner and to the same extent as in the case of any other rule of such House.

SEC. 4. (a) Notwithstanding the provisions of any

11 other law, the President shall, in accordance with subsec12 tion (b), reserve from expenditure, from new obligational 13 authority or other obligational authority otherwise available, 14 such amount as may be necessary to keep outlays during 15 a fiscal year within the limit on the total amount of out16 lays prescribed by law for that fiscal year pursuant to sec17 tion 2.

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(b) In carrying out the provisions of subsection (a) for

19 any fiscal year, the President shall reserve amounts propor20 tionately from new obligational authority and other obliga21 tional authority available for such fiscal year for each 22 functional category (as set forth in the budget), except that 23 obligational authority for outlays which, within the meaning 24 of the budget, are not controllable shall not be taken into 25 account.

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(c) In the administration of any program as to which—

(1) the amount of expenditures for any fiscal year

is limited pursuant to subsection (a), and

(2) the allocation, grant, apportionment, or other 5 distribution of funds among recipients is required to be 6 determined by application of a formula involving the amount appropriated or otherwise made available for distribution for such fiscal year,

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9 the amount available for expenditure (as determined by the 10 President pursuant to this section) shall be substituted for 11 the amount appropriated or otherwise made available in the 12 application of the formula.

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