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国会山报

国会可以通过修订两项政策来收回其支出权和战争权Congress can reclaim its spending and war powers by revising two policies

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2026年1月22日星期四,在华盛顿,美国国会大厦举行委内瑞拉战争权力决议新闻发布会前,讲台上的一块标牌上写着“结束永久战争”。(美联社照片/玛丽亚姆·祖海布)A sign on a podium reads “End Forever War” at the U.S. Capitol before a news conference on the Venezuela War Powers Resolution Thursday, Jan. 22, 2026, in Washington. (AP Photo/Mariam Zuhaib)

在最近的一起行政权力滥用事件中,特朗普总统取消了国会已批准的8.1亿美元支出,再次削弱了国会在财政方面的权力。

In one of his latest examples of executive overreach, President Trump cancelled $810 million in congressionally authorized spending, yet again undermining Congress’s power of the purse.

从冻结资金到发动非法战争,特朗普在任期内屡次试图夺取宪法赋予国会的权力。政府问责局对此次资金取消行为提出了反对意见。如今,终于有迹象表明国会开始对此感到不满。据报道,两党议员正在讨论如何修改未来的预算法案,以防止此类事件再次发生。

From funding freezes to illegal wars, Trump has repeatedly tried to seize Congress’s constitutional powers throughout this term. The Government Accountability Office pushed back on the recent cancellation. And there are finally signs that Congress is starting to get fed up. Lawmakers from both parties are reportedly discussing how to adjust future spending bills to make sure this doesn’t happen again.

不过,国会还需采取更多措施来夺回自身权力。议员们应当借鉴历史经验,重新确立自身对行政权力滥用的制衡能力,尤其是在财政支配权与宣战权方面。

But Congress must go much further in clawing its power back. Lawmakers must learn from congressional history and reassert their authority to check executive abuse, particularly on the power of the purse and war-making.

制宪者们将国会视为美国政府的根基,赋予其决定纳税人资金如何使用的权力。虽然历任总统与国会之间始终存在关于预算分配的博弈,但特朗普却试图突破仅存的种种限制。

The framers envisioned Congress as the foundation of the U.S. government, equipping it with the power to decide how taxpayer dollars are spent. While presidents and Congress have always engaged in a push and pull over funding, Trump is trying to burst through the remaining guardrails.

他的做法让人联想到20世纪70年代:当时理查德·尼克松总统拒绝动用国会已批准的数十亿美元资金。作为回应,国会通过了《资金扣留控制法》,明确规定在大多数情况下总统必须使用国会划拨的资金,从而强化了国会的财政权力。

His approach harkens back to the 1970s, when President Richard Nixon refused to spend billions of dollars of approved congressional spending. In response, Congress passed the Impoundment Control Act, which reinforced its spending power by explicitly requiring the president, in most cases, to spend the funds Congress appropriates.

然而,历任总统仍利用该法律中较为模糊的条款为资金冻结行为辩护。在特朗普的第二任期内,其政府更是变本加厉地实施这些手段:削减独立机构的经费,拖延甚至扣留数百亿美元的国会批准资金,包括用于对外援助的资金等。

But presidents have manipulated vague parts of the law to justify funding freezes. In Trump’s second term, his administration has significantly escalated these tactics, gutting funding for independent agencies as well as delaying or withholding hundreds of billions of dollars of congressionally approved funds for foreign aid and more.

在许多情况下,法院成功介入并迫使政府动用经国会批准的经费。不过,国会必须采取积极措施,确保总统遵守宪法对权力设定的限制。

In many cases, courts have successfully intervened to force the administration to spend congressionally approved funding. However, Congress must enact proactive measures to ensure presidents abide by constitutional limits on power.

首要举措便是对《资金扣留控制法》进行全面修订,消除该届政府及其他历届政府借以为由扣留或拖延拨款的模糊条款。此外,国会还应强化监督职能,确保资金得到妥善使用与分配。鉴于特朗普总统曾动用私人捐款来资助诸如翻新白宫舞厅这类存疑项目,国会必须进一步严格规范总统动用私人资金实施项目的条件——此类操作往往能绕过常规的预算审批程序。

A first step could be for Congress to overhaul the Impoundment Control Act to remove ambiguities that this administration, and others, have used to justify withholding or delaying funding. Congress should also bolster its oversight abilities to make sure funds are being used and distributed appropriately. And in the aftermath of President Trump’s use of private donations to fund dubious projects like the White House ballroom, Congress must set stronger guardrails on when presidents can use private funding for projects, a process which allows them to bypass normal appropriations processes.

另一个国会亟需重新行使宪法赋予权限的领域便是战争权力。宪法制定者赋予国会制定法律及确立国家政策的专属权力:只有国会才有权征召、供养及管理军队,并宣布战争。

Another area where Congress must reclaim its constitutional prerogatives is war powers. The framers equipped Congress with exclusive powers to make laws and set national policy. The Constitution gives Congress, not the president, the power to raise, support and regulate the military and declare war.

越南战争末期,国会通过《战争权力决议》再度确认自身在战争与和平事务上的权威。该决议明确规定:总统仅能在国会宣战、国会授权使用武力,或美国遭遇“袭击引发的全国性紧急状态”时方可动用军事力量;同时要求总统须在48小时内向国会通报任何新的军事行动,若60天内未获国会授权则须终止相关军事行动。

At the tail end of the Vietnam War, Congress reaffirmed its authority over matters of war and peace by passing the War Powers Resolution, which recognizes that the president may use military force only when Congress has declared war, after Congress has passed an authorization for use of military force or when there is a “national emergency created by attack” against the United States. The law also requires the president to notify Congress of new hostilities within 48 hours and to terminate military operations if Congress has not authorized them within 60 days.

尽管国会曾动用《战争权力决议》来终止特朗普政府非法发动的伊朗战争,但这项法律在遏制未经授权的冲突方面仍显不足。自越南战争以来,总统们一再超越其战争授权的范围,国会则难以约束对总统权力的过度宽泛解释,而法院也基本回避了对涉及战争权力的行政决策进行审查。

Despite Congress’s use of the War Powers Resolution to terminate the Trump administration’s illegal Iran War, the law has been an insufficient check on unauthorized conflict. Since the Vietnam War, presidents have overstepped the boundaries of their war authorities, Congress has struggled to rein in overly broad interpretations of presidential power and the courts have largely refrained from reviewing executive decisions concerning war powers.

仅特朗普总统一人就在伊朗、委内瑞拉、厄瓜多尔及其他地区发动了非法敌对行动,同时还在阻挠甚至威胁国会的监督者。国会花了整整三个半月才采取了一些措施来遏制伊朗战争,然而数月之后,冲突仍在持续。

President Trump alone has launched unlawful hostilities in Iran, Venezuela, Ecuador and elsewhere, all while stonewalling and even threatening congressional overseers. It took a full three-and-a-half months for Congress to take some steps to rein in the Iran War, and now months later the conflict roars on.

这些挑战凸显了国会不仅需要就伊朗问题采取行动,还必须加强《战争权力决议》,以增强该法律的约束力。专家们一致认为,可行的解决方案包括缩短法律规定的60天期限、明确“敌对行动”等关键术语的定义,并增加司法审查条款,确保法院有权纠正对法律的错误解释并遏制权力滥用。

These challenges speak to the importance of Congress not only acting on Iran but also bolstering the War Powers Resolution to strengthen that law’s constraints. Experts agree on solutions including shortening the law’s 60-day window, clarifying key terms such as “hostilities” and adding a judicial review provision to ensure that courts are empowered to correct misinterpretations of the law and rein in abuse.

半个世纪前,当国会通过《预算控制法》和《战争权力决议》时,正是为了对抗一位严重越权行事的总统。正如曾在20世纪70年代担任国会议员的伊丽莎白·霍尔特兹曼代表所言:“当时有许多法案最终成为法律,都是针对尼克松擅自扩张权力的行为。国会终于喊出了‘够了’。”如今,在数十年宪法责任的放弃与迁就之后,这一机构再次面临一位似乎完全无视权力分立的总统。

Half a century ago, when Congress passed the Impoundment Control Act and War Powers Resolution, it was doing so to stand up to a president who had stepped far outside the bounds of his authority. As Rep. Elizabeth Holtzman, who served in Congress during the 1970s, put it: “There were a lot of bills that became law which were in response to Nixon’s arrogation of power. Congress had finally said ‘enough is enough.’”Now, following decades of constitutional abdication and deference, the institution once again faces a president with seemingly no regard for separation of powers.

现在,国会应当重新唤醒并夺回其宪法赋予的权威——不仅针对最近被叫停的这笔支出,也应涵盖战争权力及整体财政支出问题——唯有如此,它才能成为美国人民所应得的“人民的分支”。

It is time for Congress to dust off and reclaim its constitutional authority — not only on this most recent canceled spending but on war powers and spending, generally — so it can be the people’s branch Americans deserve.

玛雅·科恩伯格是纽约大学法学院布伦南司法中心选举与政府项目的高级研究员。她最近出版的著作名为《僵局:金钱、媒体与暴力如何阻碍国会变革》。

Maya Kornberg is a senior research fellow in the elections and government program at the Brennan Center for Justice at NYU Law. She is also the author most recently of “Stuck: How Money, Media, and Violence Prevent Change in Congress.”