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Budget Scorekeeping Report

Floor Speech

Date: Nov. 12, 2020
Location: Washington, DC

BREAK IN TRANSCRIPT

Mr. ENZI. Mr. President, I rise to submit to the Senate the budget scorekeeping report for November 2020. This is my fourth scorekeeping report since I filed the deemed budget resolution for fiscal year 2021 on May 4, 2020, as required by the Bipartisan Budget Act of 2019, BBA19. The report compares current-law levels of spending and revenues with the amounts agreed to in BBA19. In the Senate, this information is used to determine whether budgetary points of order lie against pending legislation. The Republican staff of the Budget Committee and the Congressional Budget Office, CBO, prepared this report pursuant to section 308(b) of the Congressional Budget Act, CBA. The information included in this report is current through November 6, 2020.

Since I filed the last scorekeeping report on September 10, 2020, two measures with significant enforceable budgetary effects have been enacted. The first measure, the Continuing Appropriations Act, 2021 and Other Extensions Act, P.L. 116-159, continued funding for all 12 annual appropriations bills through December 11, 2020, and extended or modified numerous surface transportation, healthcare, nutrition and commodities, veterans' health and benefits, and immigration programs and policies. The authorizing non-emergency provisions of the bill, which were scored to the Finance (Division C), Agriculture (Division D), and Veterans' Affairs (Division E) committees, would increase the deficit $97.6 billion in fiscal year 2021, $7.1 billion over fiscal year 2021-2025, and $8.4 billion over fiscal year 2021-2030. The bill passed the Senate by a vote of 84-10.

The second measure, the Extension of the Caribbean Basin Economic Recovery Act, P.L. 116-164, extended preferential duty treatment for certain apparel items produced in the Caribbean Basin through fiscal year 2030. It also extended the date through which certain customs user fees and merchandise processing fees may be collected from September 30, 2029, to October 21, 2029. CBO estimated the bill would decrease revenue by $299 million over the fiscal year 2021-2030 period, but the fee extensions would reduce direct outlays by $435 million in fiscal year 2030. On net, the bill would reduce deficits by $136 million over the fiscal year 2021-2030 budget window. This bill cleared the Senate by unanimous consent and was charged to the Finance Committee.

Budget Committee Republican staff prepared Tables A-D.

Table A provides the amount by which each Senate authorizing committee exceeds or falls below its allocations for budget authority and outlays under the fiscal year 2021 deemed budget resolutions. This information is used for enforcing committee allocations pursuant to section 302 of the CBA. As the table shows, five committees are currently out of compliance with their allocations. The Finance Committee's fiscal year 2021 breach is the largest for this recording period and primarily stems from Division C, title V of P.L. 116-159, which provided accelerated and advanced payments to Medicare providers. CBO estimated that these advanced payments would be recouped in future years.

Table B provides the amount by which the Senate Committee on Appropriations is below or exceeds the statutory spending limits. This information is used to determine points of order related to the spending caps found in sections 312 and 314 of the CBA. Appropriations for fiscal year 2021, displayed in this table, show that the Appropriations Committee is currently compliant with spending limits for fiscal year 2021. As of this filing, no full-year annual appropriations bills have been enacted and figures displayed represent advanced and permanent appropriations previously provided as well as full-year anomalies from the most recently enacted continuing resolution. Notably, P.L. 116-159 provided a full-year annual appropriation of $13 million for costs associated with the upcoming Presidential inauguration in January. This appropriation is categorized as nonsecurity and has been charged to the Financial Services and General Government subcommittee.

Table C displays figures related to the limit on the use of changes in mandatory programs, CHIMPs, in appropriations bills. This $15 billion CHIMP limitation for fiscal year 2021 is found in section 207 of BBA19. The Appropriations Committee is currently in compliance with this limit.

Table D provides the amount of budget authority enacted for fiscal year 2021 that has been designated as either for an emergency or for overseas contingency operations--OCO--pursuant to section 251 (b)(2)(A) of the Balanced Budget and Emergency Deficit Control Act of 1985, as amended. Funding that receives either of these designations results in cap adjustments to enforceable discretionary spending limits. There are no limits on either emergency or OCO spending; however, any Senator may challenge the designation with a point of order to strike the designation on the floor. No new budget authority with either of these designations has been enacted for fiscal year 2021.

In addition to the tables provided by Budget Committee Republican staff, I am submitting CBO tables which I will use to enforce budget totals approved by Congress.

For fiscal year 2021, CBO annualizes the effects of the last continuing resolution, which provides funding through December 11, 2020. For the enforcement of budgetary aggregates under section 311 of the CBA, the Budget Committee historically excludes temporary funding. As such, the current law levels, which exclude the temporary effects of the continuing resolution, are $1,079.0 billion and $569.6 billion in budget authority and outlays, respectively, below allowable levels, Tables 1 and 2. This spending room will be spent down as regular appropriations bills are enacted for the budget year. Revenues exceed assumed levels by $267 million, $1.4 billion, and $2.8 billion over the fiscal year 2021, fiscal year 2021-2025, and fiscal year 2021-2030 periods, respectively. Social Security levels are at the levels assumed by the fiscal year 2021 deemed budget.

CBO's report also provides information needed to enforce the Senate Pay-As-You-Go, PAYGO, rule, table 3. This rule is enforced under section 4106 of the 2018 budget resolution. The Senate PAYGO scorecard currently shows enacted deficit increases in every enforceable window. The largest debit on the scorecard is $17.1 billion over the fiscal year 2020-2030 period. The deficit increases caused by the authorizing provisions of the most recently enacted continuing resolution were excluded from the PAYGO scorecard pursuant to a direction in that law.

This submission also includes a table tracking the Senate's budget enforcement activity on the floor since the enforcement filing on May 4, 2020. No points of order have been raised since my September report.

All years in the accompanying tables are fiscal years.

8,418 10,002 12,089 Outlays............................. 8,261 9,676 11,462 Armed Services Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Banking, Housing, and Urban Affairs Budget Authority.................... 0 4 21 Outlays............................. 0 4 21 Commerce, Science, and Transportation Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Energy and Natural Resources Budget Authority.................... 2,820 14,420 19,410 Outlays............................. 310 5,870 17,280 Environment and Public Works Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Finance Budget Authority.................... 89,738 373 -432 Outlays............................. 89,644 -1,116 -435 Foreign Relations Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Homeland Security and Governmental Affairs Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Judiciary Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Health, Education, Labor, and Pensions Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Rules and Administration Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Intelligence Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Veterans' Affairs Budget Authority.................... 13 -86 7 Outlays............................. 13 -86 7 Indian Affairs Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 Small Business Budget Authority.................... 0 0 0 Outlays............................. 0 0 0 ------------------------------- Total Budget Authority................ 100,989 24,713 31,095 Outlays......................... 98,228 14,348 28,335 ------------------------------------------------------------------------ This table is current through November 6, 2020. This table tracks the

spending effects of enacted legislation compared to allowable levels

for authorizing committees. Initial allocations for the 2021, 2021-

2025, and 2021-2030 periods can be found in the Chairman's May 4, 2020

filing in the Congressional Record. TABLE B.--SENATE APPROPRIATIONS COMMITTEE--ENACTED REGULAR DISCRETIONARY APPROPRIATIONS \1\ [Budget authority, in millions of dollars] ------------------------------------------------------------------------ 2021 --------------------------------- Security \2\ Nonsecurity \2\ ------------------------------------------------------------------------ Statutory Discretionary Limits........ 671,500 626,500 Amount Provided by Senate Appropriations Subcommittee Agriculture, Rural Development, and 0 7 Related Agencies..................... Commerce, Justice, Science, and 0 0 Related Agencies..................... Defense............................... 45 0 Energy and Water Development.......... 0 0 Financial Services and General 0 13 Government........................... Homeland Security.................... 0 9 Interior, Environment, and Related 0 0 Agencies............................. Labor, Health and Human Services, 0 24,679 Education, and Related Agencies...... Legislative Branch.................... 0 1 Military Construction, Veterans 0 83,233 Affairs, and Related Agencies........ State, Foreign Operations, and 0 0 Related Programs..................... Transportation and Housing and Urban 0 4,400 Development, and Related Agencies --------------------------------- Current Level Total........... 45 112,342 Total Enacted Above (+) or Below (- -671,455 -514,158 ) Statutory Limits............... ------------------------------------------------------------------------ This table is current through November 6, 2020. \1\ This table excludes spending pursuant to adjustments to the

discretionary spending limits. These adjustments are allowed for

certain purposes in section 251(b)(2) of BBEDCA. \2\ Security spending is defined as spending in the National Defense

budget function (050) and nonsecurity spending is defined as all other

spending.

TABLE C.--SENATE APPROPRIATIONS COMMITTEE--ENACTED CHANGES IN MANDATORY SPENDING PROGRAMS (CHIMPS) [Budget authority, millions of dollars] ------------------------------------------------------------------------ 2021 ------------------------------------------------------------------------ CHIMPS Limit for Fiscal Year 2021.................... 15,000 Senate Appropriations Subcommittees Agriculture, Rural Development, and Related Agencies. 0 Commerce, Justice, Science, and Related Agencies..... 0 Defense.............................................. 0 Energy and Water Development......................... 0 Financial Services and General Government............ 0 Homeland Security.................................... 0 Interior, Environment, and Related Agencies.......... 0 Labor, Health and Human Services, Education, and 0 Related Agencies.................................... Legislative Branch................................... 0 Military Construction, Veterans Affairs, and Related 0 Agencies............................................ State, Foreign Operations, and Related Programs...... 0 Transportation, Housing and Urban Development, and 0 Related Agencies.................................... ------------------ Current Level Total.......................... 0 Total CHIMPS Above(+) or Below(-) Budget Resolution.. -15,000 ------------------------------------------------------------------------ This table is current through November 6, 2020. TABLE D.--SENATE APPROPRIATIONS COMMITTEE--ENACTED EMERGENCY AND OVERSEAS CONTINGENCY OPERATIONS SPENDING [Budget authority, millions of dollars] ---------------------------------------------------------------------------------------------------------------- 2021 ------------------------------------------------------------------- Emergency and Overseas Contingency Emergency Overseas Contingency Operations

Operations Designated Spending ------------------------------------------------------------------- Security \1\ Nonsecurity \1\ Security \1\ Nonsecurity \1\ ---------------------------------------------------------------------------------------------------------------- Current Level Total......................... 0 0 0 0 ---------------------------------------------------------------------------------------------------------------- This table is current through November 6, 2020. \1\ Security spending is defined as spending in the National Defense budget function (050) and nonsecurity

spending is defined as all other spending. Congressional Budget Office, U.S. Congress, Washington, DC, November 12, 2020. Hon. Mike Enzi, Chairman, Committee on the Budget, U.S. Senate, Washington, DC.

Dear Mr. Chairman: The enclosed report shows the effects of Congressional action on the fiscal year 2021 budget and is current through November 6, 2020. This report is submitted under section 308(b) and in aid of section 311 of the Congressional Budget Act, as amended.

The estimates of budget authority, outlays, and revenues are consistent with the allocations, aggregates, and other budgetary levels printed in the Congressional Record on May 4, 2020, pursuant to section 205 of the Bipartisan Budget Act of 2019 (Public Law 116-37).

Since our last current level dated September 4, 2020, the Congress has cleared and the President has signed the following legislation that has significant effects on budget authority, outlays, or revenues in fiscal year 2021:

Continuing Appropriations Act, 2021 and Other Extensions Act (Public Law 116-159); and

Extension of the Caribbean Basin Economic Recovery Act (Public Law 116-164). Sincerely, Phillip L. Swagel.

Enclosure. TABLE 1.--SENATE CURRENT LEVEL REPORT FOR SPENDING AND REVENUES FOR FISCAL YEAR 2021, AS OF NOVEMBER 6, 2020 [In billions of dollars] ------------------------------------------------------------------------ Current Budget Current Level Over/ Resolution Level Under (-) Resolution ------------------------------------------------------------------------ On-Budget Budget Authority............. 3,832.2 4,032.8 200.6 Outlays...................... 4,008.8 4,152.6 143.8 Revenues..................... 2,800.4 2,800.6 0.3 Off-Budget Social Security Outlays a.... 1,016.3 1,016.3 0.0 Social Security Revenues..... 1,001.1 1,001.1 0.0 ------------------------------------------------------------------------ Source: Congressional Budget Office. a Excludes administrative expenses paid from the Federal Old-Age and

Survivors Insurance Trust Fund and the Federal Disability Insurance

Trust Fund of the Social Security Administration, which are off-

budget, but are appropriated annually. TABLE 2.--SUPPORTING DETAIL FOR THE SENATE CURRENT LEVEL REPORT FOR ON-BUDGET SPENDING AND REVENUES FOR FISCAL YEAR 2021, AS OF NOVEMBER 6, 2020 [In millions of dollars] ---------------------------------------------------------------------------------------------------------------- Budget Authority Outlays Revenues ---------------------------------------------------------------------------------------------------------------- Previously Enacted a b c Revenues................................................. n.a. n.a. 2,800,378 Permanents and other spending legislation................ 2,509,325 2,416,968 n.a. Authorizing and Appropriation legislation................ 0 811,012 0 Offsetting receipts...................................... -1,029,908 -1,030,145 n.a. -------------------------------------------------- Total, Previously Enacted............................ 1,479,417 2,197,835 2,800,378 Enacted Legislation Authorizing Legislation.................................. Paycheck Protection Program Flexibility Act of 2020 (P.L. - - - - - - - - - 116-142) c.............................................. Emergency Aid for Returning Americans Affected by - - - - - - - - - Coronavirus Act (P.L. 116-148) c........................ Great American Outdoors Act (P.L. 116-152)............... 2,820 310 - - - The Ryan Kules and Paul Benne Specially Adaptive Housing 11 11 - - - Improvement Act of 2019 (P.L. 116-154).................. Continuing Appropriations Act, 2021 and Other Extensions 98,158 97,907 282 Act (P.L. 116-159) c.................................... Extension of the Caribbean Basin Economic Recovery Act - - - - - - -15 (P.L. 116-164).......................................... -------------------------------------------------- Subtotal, Authorizing Legislation.................... 100,989 98,228 267 Appropriation Legislation Continuing Appropriations Act, 2021 and Other Extensions 13 124 - - - Act (P.L. 116-159) d.................................... -------------------------------------------------- Subtotal, Appropriation Legislation.................. 13 124 0 Continuing Resolution Continuing Appropriations Act, 2021 and Other Extensions 1,279,551 713,351 0 Act (P.L. 116-159) a b.................................. Entitlements and Mandatories 1,172,808 1,143,371 0 Total Current Level b c.................................. 4,032,778 4,152,588 2,800,645 Total Senate Resolution e................................ 3,832,200 4,008,797 2,800,378 Current Level Over Senate Resolution................. 200,578 143,791 267 Current Level Under Senate Resolution................ n.a. n.a. n.a. Memorandum: Revenues, 2021-2030 Senate Current Level c................................... n.a. n.a. 35,726,855 Senate Resolution........................................ n.a. n.a. 35,724,078 -------------------------------------------------- Current Level Over Senate Resolution................. n.a. n.a. 2,777 Current Level Under Senate Resolution................ n.a. n.a. n.a. ---------------------------------------------------------------------------------------------------------------- Source: Congressional Budget Office. n.a. = not applicable; P.L. = public law;- - -= excluded from current level. a Sections 1001-1004 of the 21st Century Cures Act (P.L. 114-255) require that certain funding provided for 2017

through 2026 to the Department of Health and Human Services--in particular the Food and Drug Administration

and the National Institutes of Health--be excluded from estimates for the purposes of the Balanced Budget and

Emergency Deficit Control Act of 1985 (Deficit Control Act) and the Congressional Budget and Impoundment

Control Act of 1974 (Congressional Budget Act). Therefore, the amounts shown in this report do not include

$474 million in budget authority and $732 million in estimated outlays. b For purposes of enforcing section 311 of the Congressional Budget Act in the Senate, the aggregate spending

and revenue levels for 2021 published in the Congressional Record on May 4, 2020, by the Chairman of the

Senate Committee on the Budget pursuant to section 205 of the Bipartisan Budget Act of 2019 (P.L. 116-37) do

not include budget authority, outlays, or revenues for off-budget amounts. As a result, amounts in this

current level report do not include those items. c Current level excludes budgetary effects designated as an emergency pursuant to section 4112 of H. Con. Res.

71 (115th Congress), the concurrent resolution on the budget for fiscal year 2018. As a result, this report

excludes $68,534 million in budget authority, $72,977 million in outlays, and all revenue effects stemming

from legislation enacted before the Chair of the Senate Committee on the Budget published aggregate spending

and revenues for fiscal year 2021 in the Congressional Record on May 4, 2020. It also excludes the budgetary

effects of other laws, enacted this session, which were designated as emergency requirements in accordance

with section 4112 of H. Con. Res. 71. Those amounts are as follows: Budget Authority Outlays Revenues ---------------------------------------------------------------------------------------------------------------- Paycheck Protection Program Flexibility Act of 2020 (P.L. 116- 0 0 -8,091 142)........................................................ Emergency Aid for Returning Americans Affected by Coronavirus 1 1 0 Act (P.L. 116-148).......................................... Continuing Appropriations Act, 2021 and Other Extensions Act -50 -39 0 (P.L. 116-159).............................................. -------------------------------------------------- Total.................................................... -49 -38 -8,091 ---------------------------------------------------------------------------------------------------------------- d Includes the budgetary effects of nontemporary provisions that were included in division A of the Continuing

Appropriations Act, 2021 and Other Extensions Act (P.L. 116-159). e Section 205 of the Bipartisan Budget Act of 2019 requires the Chair of the Senate Committee on the Budget to

publish the aggregate spending and revenue levels for fiscal year 2021; those aggregate levels were first

published in the Congressional Record on May 4, 2020. The Chair of the Senate Committee on the Budget has the

authority to revise the budgetary aggregates for the budgetary effects of certain revenue and spending

measures pursuant to the Congressional Budget Act of 1974 and H. Con. Res. 71 (115th Congress), the concurrent

resolution on the budget for fiscal year 2018, as updated by the Bipartisan Budget Act of 2019: Budget Authority Outlays Revenues ---------------------------------------------------------------------------------------------------------------- Original Aggregates Printed on May 4, 2020:.................. 3,832,200 4,008,705 2,800,378 Revisions: Adjustment for Continuing Appropriations Act, 2021 and 0 92 0 Other Extensions Act (P.L. 116-159)..................... -------------------------------------------------- Revised Senate Resolution.................................... 3,832,200 4,008,797 2,800,378 ---------------------------------------------------------------------------------------------------------------- TABLE 3.--SUMMARY OF THE SENATE PAY-AS-YOU-GO SCORECARD AS OF NOVEMBER 6, 2020 [In millions of dollars] ------------------------------------------------------------------------ 2020 2021 2020-2025 2020-2030 ------------------------------------------------------------------------ Beginning Balance a........... 0 0 0 0 Enacted Legislation b c Paycheck Protection - - - - - - - - - - - - Program Flexibility Act of 2020 (H.R. 7010, P.L. 116-142) d............... Uyghur Human Rights Policy * * * * Act of 2020 (S. 3744, P.L. 116-145)............ Emergency Aid for - - - - - - - - - - - - Returning Americans Affected by Coronavirus Act (S. 4091, P.L. 116- 148) d................... Hong Kong Autonomy Act 0 0 -1 -7 (H.R. 7440, P.L. 116-149) A bill to extend the * * * * Chemical Facility Anti- Terrorism Standards Program of the Department of Homeland Security, and for other purposes (S. 4148, P.L. 116-150)...... The Great American 0 310 5,870 17,280 Outdoors Act (H.R. 1957, P.L. 116-152)............ The Ryan Kules and Paul 1 11 -93 0 Benne Specially Adaptive Housing Improvement Act of 2019 (H.R. 3504, P.L. 116-154)................. Safeguarding America's * * * * First Responders Act of 2020 (S. 3607, P.L. 116- 157)..................... Continuing Appropriations * * * * Act, 2021 and Other Extensions Act (H.R. 8337, P.L. 116-159) e.... Extension of the Caribbean 0 15 80 -136 Basin Economic Recovery Act (H.R. 991, P.L. 116- 164)..................... Merrill's Marauders 0 * * * Congressional Gold Medal Act (S. 743, P.L. 116- 170)..................... Defending the Integrity of 0 * * * Voting Systems Act (S. 1321, P.L. 116-179)...... America's Conservation 0 * * * Enhancement Act (S. 3051, P.L. 116-188)............ A bill to amend the 0 * * * Klamath Basin Water Supply Enhancement Act of 2000 to make certain technical corrections. (S. 3758), P.L. 116-191). ----------------------------------------- 1 336 5,856 17,137 ----------------------------------------- Impact on Deficit......... 1 336 5,856 17,137 Total Change in 1 321 5,781 16,866 Outlays.............. Total Change in 0 -15 -75 -271 Revenues............. ------------------------------------------------------------------------ Source: Congressional Budget Office. * = between -$500,000 and $500,000; -- = excluded from PAYGO scorecard. a On May 4, 2020, the Chairman of the Senate Committee on the Budget

reset the Senate's Pay-As-You-Go Scorecard to zero for all fiscal

years. b The amounts shown represent the estimated effect of the public laws on

the deficit. c Excludes off-budget amounts. d All amounts in this Act are designated as emergency requirements

pursuant to section 4112(a) of H. Con. Res. 71 (115th Congress). e The budgetary effects of division B and each succeeding division of

this Act are excluded from the Senate's PAYGO Scorecard pursuant to

section 4501 of that act. The remaining amounts in division A are

insignificant. ENFORCEMENT REPORT OF POINTS OF ORDER RAISED SINCE THE FY 2021 ENFORCEMENT FILING ---------------------------------------------------------------------------------------------------------------- Vote Date Measure Violation Motion to Waive Result ---------------------------------------------------------------------------------------------------------------- 118 June 15, 2020..... S. Amdt. #1617, 4106(a)-Senate-Pay- Sen. Gardner (R- 68-30, waived Great American As-You-Go CO). Outdoors Act, to Violation 1. H.R. 1957. ---------------------------------------------------------------------------------------------------------------- \1\ Senator Enzi raised a point of order against the measure pursuant to section 4106(a) of H. Con. Res. 71, the

Concurrent Resolution on the Budget for Fiscal Year 2018, because the amendment would increase on-budget

deficits.

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