the Comptroller General. The Comptroller General indicates that this pur pot being accomplished. OMB and Treasury are, to my understanding, av detailed congressional information requirements which will be conside The context of overall budgetary considerations.

My purpose in offering the Congressional Budget Control Act of 1973 provide those detailed congressional information requirements.

The budget as presented to Congress today is not meaningful. It for activities into program labels that are not real or actual, are not easily parable to other similar or even identical programs in other Departments. I am arguing for is a budget structure that is functional-and workable. At a glance, Congress should be able to determine who is doing what-so it can spend more time deciding whether or not we should be doing it at It is at the research and development level-the beginning stages of activity that Congress ought to be directing most of its energies-that 5 per of the budget which inevitably determines how well or poorly the remai 555 percent will be expanded years later. The usual mechanisms of legisla oversight reporting, budget review, investigation tend to be ex post fact nature and are, therefore, limited in usefulness.

There is, under the present budget structure a pitfall that draws the ( gress to dwell excessively on trivial detail. We are challenged to confront budget on the budget's terms, challenged to become specialists and technical peris on smaller and more detailed aspects of Federal expenditures. And e when we are successful in this battle, we have lost the war because we have fr mented our view and control over the basic thrust, direction, and purpose Federal expenditures. Such issues are never exposed in our current budg they are hidden,

In summary then, my purpose this morning is to make more vivid the pro lem we all know only too well. Budgeting for a modern Government is extreme complex and the armada of officials in executive agencies who prepare and jt tify the President's Budget far outnumbers the congressional subcommitte and their small staffs. The question of how much money should be spent for Government program is often without a determinate answer. And though t amounts of money that executive agencies request and Congress appropriate are not unrestrained, Congress is in no position to know whether those amount are well spent.

Right now neither the executive nor Congress approaches the Defense Budget for example, as an ad hoc problem, intent on a free-ranging examination of al possible alternatives before making a choice. Both branches of Governmen begin their thinking about the budget with a common and very narrow range of figures already in mind-based on last year's expenditures. I feel very strongly that if we do not "mission-orient" our budget we will continue to play the kind of game we have been playing-overauthorizing in committee in anticipation of cuts in conference.

Congress cannot practically set priorities until we know the missions—and we cannot know the missions until OMB presents the budget in mission form. I am suggesting that the way OMB presents its budget to the Congress be changed. I have offered a framework for that change the budget must be presented to Congress in a workable fashion for Congress to regain control. Individual programs must be keyed to functions and missions of Federal agencies and those functions and missions keyed to national needs and priorities. Congress must have that kind of understandable, coordinated information before it can realistically search for different ways to meet the set goals; choose the way we will try to meet them and closely supervise how well our taxpayers' money is being spent. Until that requirement is placed upon Treasury and OMB, until the Congress receives a budget that is structured in practical and comparable fashion, Congress can talk all it wants to about reasserting itself. I fail to see how any budget can controlled until it is fully understood.

Mr. President, I ask unanimous consent to have printed in the Record the text of my bill, as well as the tables to which I have referred.

(There being no objection, the bill and tables were ordered to be printed in the Record, as follows:)

S. 1414

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That this Act may be cited as the "Congressional Budget Control Act of 1973”.

(3) taste primo ces

b) To assist the President at agerer

(1) shall develop its Lierarchy of national needs dearly delegate time rejis tons, and

(2) shall relate all its pr ach program by four test se present to Le Offer of M 1:26 Budget message, information rat authority and outlays are bMIZ IH, (0) Programs wil in an agency meet nated by the agency head. Progres tational needs shall be coniitated by

and Budget so that the Execptive brizes and Congr overview of all programs meeting similar Latvala zemeda

MEANING OF TIZY

SEC. 4. (a) (1) "National needs"; "faretions of the Federal gå vem nent": "priorities”: National needs are the base and distinct firstordr meds of the Nation, such as the needs for national defense, health, public education, energy, transportation, housing, income security, management of natural resources, and a national base of research and technology. The functions of the Federal government are to meet these national needs. Priorities determine, and are reflected in, the allocation of funds to meet each national need.

(2) "Supporting needs": In order to meet each national need, the Federal government must meet supporting needs associated with that national need, depending on national policy and strategy. To meet the need for national defense,

supporting needs may include the needs for strategic offense, fleet air defen and close air support. To meet the need for public education, supporting nee may include the needs for pre-school education, graduate education, and ma power training.

(3) “Hierarchy of national needs": The combined national needs and suppo ing needs from a hierarchy of national needs which are the end-purpose f which Federal funds are expended, without regard to the means chosen to me those purposes.

(b) (1) "Agency missions": Responsibility for meeting national needs and su porting needs shall be assigned to the departments and agencies, and their con ponent subdivisions, of the Executive branch (in this Act referred to as "age cies"). The missions of an agency are to meet those national needs for which the are assigned responsibility. Agency missions must be directly defined in term of the hierarchy of national needs, and the hierarchy of national needs must b matched to the missions of all agencies.

(2) "Agency programs": In order to perform their missions, agencies will carr on one or more programs. A program is an organized set of activities that are together, directed to providing goods and/or services that will meet a nationa need or part thereof.

(3) "Basic steps": Every program must progress through four basic steps, of varying duration, as follows:

(A) “Establishing needs and goals": The first step is defining the need to be met by the program and the objective measures of the end results, or goals, to be sought and attained as a consequence of the program. Goals are independent of the means to be used to achieve them. Goals describe the level of mission capability the agency is seeking, when it is to be made available, and the total program cost of providing that capability. Activities performed to execute this step include studies and analyses and do not generally require separate authorization or appropriation.

(B) "Exploring alternatives": The second step is the creation, definition, and evolution of competing means to meet the need. This step draws directly on the base of organized knowledge in the sciences (including social services) in order to identify and evolve those approaches that are promising, to eliminate those that are not promising and to supply information on the expected costs and benefits of each approach. Activities performed to execute this step are research. development, testing and evaluation and require separate authorization and appropriations.

(C) "Choosing the preferred program approach": The third step is the evaluation and choice of the preferred program approach from among remaining alternatives. The evaluation will determine which approach will best meet the updated goals of the program and the costs and benefits accruing to each alternative in meeting the agency's mission. Research, development, testing, and evaluation activities support this step.

(D) "Implementation": The fourth step is putting the preferred program approach into operation and monitoring its effectiveness. This includes final development preparation of the chosen approach. Activities that support this step include procurement of necessary equipment, operating, and maintenance activities.

EFFECTIVE DATE

SEC. 5. (a) Not later than June 30, 1975, the Director of the Office of Management and Budget, under the direction of the President, shall

(1) specify a hierarchy of national needs, and

(2) reconcile and assign the responsibilities of the various agencies to meet the national needs so specified.

(b) Not later than June 30, 1976, the head of each agency shall reconcile the programs of his agency to the national needs assigned to his agency and shall organize program information by basic program steps.

*Cross agency correlation is particularly important here because NASA basically explores and chooses space options to meet national problems; other agencies must do the implementation.

100% C10X REMARKS OF SENATOR TUNNEY ON THE LEGISLATIVE PRIO AND BUDGET REFORM ACT OF 1973 (1516)

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Mr. President, I am introducing today the Legislative Prio Met Reform Act of 1973.

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fogočation provides mechanisms and procedures through which Con y cold-ically review major spending programs, determine and eni pia' outlay ceilings, and establish explicit budgetary priorities. It car these dificult and demanding tasks be performed by broadly re Hou and Senate Budget Committees with memberships which r re, re wax to maximize congressional participation. Parent to any one who has followed the polls, the press or congressio

Congress must move as soon as humanly possible to establ Ndietary controls. If the constitutionally mandated separation o be preserved, we must have equally speedy action on congression To set financial priorities. Congress, of course, is constitutiona w-4 thọ Executive. Congress cannot, however, properly exercise and overdight responsibilities with inadequate resources. Part and parc

berora, therefore, must be the creation of a fully equipped pr 1 or program and budget analysts capable of functioning with th on and scope as its executive counterpart, the Office of Managemer Ps of this distinguished body have and will introduce budge rol legislation. I should like to emphasize that the bill I am in To from other proposed legislation in a fundamental respect—it

make committee recommendations on outlay ceilings and in the hands of two committees whose memberships faithCut compositions of the House of Congress that each serves. a desating these responsibilities to existing standing committees very nature, tend to over-represent particular political and ecoeps this bill creates House and Senate Budget Committees. committees must be distributed so as to provide maximal all interests and philosophies and maximal opportunity for e. The decisions of the Budget Committees, when approved forced via the mechansim embodied in this bill, will be among of all determinations made each session. They will determine and direction of Federal economic impact for the indefinite future. Nome for the entire Federal Establishment.

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work of setting budget ceilings and priorities is so critipreformed by committees that are truly representative of I am introducing today provides for such representation. visions are explained in the section-by-section analysis and the section-by-section analysis be printed at this point