What’s in the FY2025 House Budget Resolution
he House Budget Committee introduced a budget resolution for fiscal year (FY) 2025. If approved by both the House and Senate, it will unlock a reconciliation process that enables major tax-and-spending legislation to fast-track and bypass the Senate’s 60-vote filibuster rule with a simple majority.
Republicans hope to leverage the reconciliation process this year to extend and expand on expiring tax cuts. While the reconciliation bill’s ultimate deficit impact is yet to be determined, the topline instructions allow for an up to $3.3 trillion deficit increase over 10 years.
What is a budget resolution?
A budget resolution is a document that outlines desired spending, revenue, debt, and deficit levels for the federal government over a specified period (often 10 years). It is the first step Congress is supposed to take in order to pass annual spending bills ahead of the October 1 start of the fiscal year; it also enables the reconciliation process. Under the 1974 Congressional Budget and Impoundment Control Act (CBA), Congress is supposed to complete action on the budget resolution by April 15, though it often fails to do so.
What is reconciliation?
Budget reconciliation is a legislative procedure established by the CBA. Reconciliation allows for expedited consideration of certain and specified changes in law to align federal spending, revenue, and the debt limit with agreed-upon budget targets. A reconciliation bill can avoid the Senate’s 60-vote filibuster threshold and provides lawmakers the chance to pass legislation with a simple majority vote. Read more about reconciliation here.
What’s in the FY2025 House budget resolution?
Title I: Recommended Levels and Amounts
This title specifies target levels for overall federal revenues, spending, deficits, and debt. It also specifies target federal spending levels across 20 major functional categories, such as national defense, health, and transportation.
The CBA requires each of these items to be included in a budget resolution.
Title II: Reconciliation
Congress is not required to include reconciliation instructions in the budget resolution, but doing so unlocks the fast-track process.
The FY2025 House budget resolution includes directives to some, but not all, of the committees in the House. This title requires committees with instructions to report back legislation achieving either a floor of deficit reduction or a ceiling of deficit increases. Committees may then propose tax-and-spending changes to the programs and policies under their legislative jurisdiction that clear their deficit reduction floor or stay under their deficit increase ceiling.
The FY2025 budget resolution’s instructions in the House are:
TABLE 1. RECONCILIATION INSTRUCTIONS MAY ALLOW FOR $3.3 TRILLION IN DEFICIT INCREASES, THOUGH THAT TOPLINE MAY BE HIGHER OR LOWER BASED ON CONGRESSIONAL ACTION
House Committee Reconciliation Instruction
(billions of dollars; negative = deficit reduction, positive = deficit increase)
Energy & Commerce -$880 B
Education & Workforce -$330 B
Agriculture -$230 B
Oversight -$50 B
Small Business -$10 B
Financial Services -$1 B
Natural Resources -$1 B
Homeland +$90 B
Armed Services +$100 B
Judiciary +$110 B
Ways & Means +$4,500 B (4.5 Trillion)
Total +$3,298 (3.3 Trillion)
Debt Limit Increase $4,000 B (4 Trillion)
A budget resolution from one chamber of Congress can include reconciliation instructions to committees in the other chamber, but does not have to. The FY2025 House budget resolution does not include Senate instructions. The topline instructions allow for up to $3.3 trillion in deficit increases. One or more committees may have overlapping instructions; if this is the case, the topline deficit increase may be more or less than $3.3 trillion.
The budget resolution appears to rely on a current law baseline. This assumes major provisions of the Tax Cuts and Jobs Act of 2017 (TCJA) expire on December 31, 2025, as scheduled, and cost $4 trillion-plus to extend—rather than a current policy baseline that assumes TCJA provisions continue and cost $0 to extend. Learn more about budget baselines here.
Title II also instructs the Ways and Means Committee to submit legislation increasing the debt limit by $4 trillion.
The tables that accompany the budget resolution project $2.6 trillion in deficit reduction from economic growth resulting from the broader Republican agenda and $1.8 trillion in additional but unspecified discretionary savings. The extent to which dynamic scoring for TCJA extension contributes to this growth assumption is unclear, but the economic assumptions exceed the $372 billion in dynamic scoring estimated by the Joint Committee on Taxation for extending expiring individual tax provisions in TCJA. Further, the Appropriations Committee has jurisdiction over discretionary spending but is not given an instruction in this bill.
BPC has multiple resources assessing the impact of a growing national debt, including consequences for households, the economy, and national security.
Title III: Reserve Funds
Reserve funds allow the chairs of the House and Senate Budget Committees to revise targets in the budget resolution for a specified purpose. The FY2025 budget resolution includes a reserve fund allowing for reconciliation legislation, which is standard boilerplate language in budget resolutions used to unlock the reconciliation process.
The House or Senate may add reserve funds by amending the budget resolution before it advances out of each chamber. The Senate sometimes adds deficit-neutral reserve funds (DNRFs) in a “vote-a-rama” on a budget resolution (so named because there is no limit on amendments and voting can last hours). These reserve funds and DNRFs often serve as general policy statements rather than specific legislative proposals, and can be used by the minority party to compel the majority party into politically challenging votes.
Title IV: Policy Statements
The budget resolution contains two policy statements, one on economic growth and one on mandatory spending reductions.
- Economic Growth: This section states that the budget resolution seeks to pursue policies that grow the economy and “embrace the free market,” including federal spending cuts, American energy production, tax cuts, deregulation, and “eliminat[ing] barriers to work.”
- Mandatory Spending Cuts: This section states that the budget resolution seeks to cut mandatory spending by $2 trillion over 10 years. This is a larger spending cut goal than contained in the reconciliation instructions, which add up to $1.5 trillion in deficit reduction. Importantly, this section also states that the Budget Committee believes failure to hit that $2 trillion spending cut target should be offset with reductions in the Ways and Means Committee’s instruction to increase deficits by up to $4.5 trillion.
Unlike other provisions of the budget resolution, these policy statements do not legally bind the House or Senate or limit what they can do in a reconciliation bill.
Title V. Other Matters
This title contains a variety of enforcement provisions that are standard in budget resolutions that unlock the reconciliation process. These include:
- A section stating that the Budget Committee will determine changes to new spending and revenues in the budget resolution;
- A section stating that the spending, revenue, and deficit totals may be adjusted to account for changes in budgetary concepts; and
- A section stating that the spending, revenue, and deficit totals may be adjusted to account for updates in the Congressional Budget Office’s baseline.
See similar language as this title in the FY2018 House budget resolution that helped unlock reconciliation for TCJA and the FY2021 Senate budget resolution that unlocked reconciliation for the American Rescue Plan.
https://bipartisanpolicy.org/explainer/whats-in-the-fy2025-house-budget-resolution/#So they are taking two trillion from social services and transferring that to the wealthy via tax cuts… that should help out the economy… when pigs fly. Not to mention they want to raise the deficit by 4 Trillion to boot. Congrats, you’re owning the libs now MAGA… Hope grandma doesn’t mind taking a job to stay in the nursing home. That money comes from Medicaid, not medicare.