Finance Bill 2025-26: Public Bill Committee
Why linked: Finance Bill 2025-26 Public Bill Committee amendments — Bill progress.
Explanatory Notes for government amendments in Public Bill Committee of Finance Bill 2025-26.
An umbrella thread covering the UK's fiscal and monetary policy framework: the Charter for Budget Responsibility and fiscal rules, the annual Budget and Finance Bill cycle, the Spending Review, the Bank of England's monetary and macro-prudential remits, and OBR independent forecasting under the Budget Responsibility and National Audit Act 2011 (as amended by the Budget Responsibility Act 2024).
The framework binds every other domestic policy thread: departmental envelopes flow from the Spending Review, tax measures from the Finance Bill, and credibility of the path from OBR assessments against the Charter. The 2024 'fiscal lock' (Budget Responsibility Act 2024) plus the Autumn 2025 Charter revisions tightened the institutional architecture after the September 2022 mini-Budget episode.
Framework is operational: Charter approved by Parliament January 2025 and updated Autumn 2025 to legislate one major fiscal event per year and an annual OBR rules assessment; Finance Bill 2025-26 progressing through Parliament; March 2026 OBR EFO published alongside Spring Statement; recruitment underway for a new OBR Chair following Richard Hughes's December 2025 resignation.
Committee stage of the Bill that became the Budget Responsibility Act 2024; introduced the 'fiscal lock' requiring an OBR section 4A report on fiscally significant measures (1% of GDP) and amended the Budget Responsibility and National Audit Act 2011.
Updated Charter codifying the fiscal mandate, the stability rule and investment rule, and now requiring the OBR to assess performance against the rules once a year at the Budget — responding to IMF recommendations.
HMT explanatory paper setting out the post-Autumn Budget 2024 fiscal framework architecture and rules.
Rachel Reeves laid the post-Autumn-Budget-2024 Charter before Parliament; subsequently approved 29 January 2025.
Pensions Minister Torsten Bell laid draft Charter before the Commons signalling the Budget 2025 strengthening of the fiscal framework and the new statutory annual OBR rules assessment.
Extends FPC's powers under sections 9I, 9L of the Bank of England Act 1998 to direct the PRA to apply macro-prudential measures to bank and investment-firm holding companies on a consolidated or sub-consolidated basis.
Updated 2018 MoU governing the financial relationship between HMT and the Bank, published with a joint statement following the 5-yearly capital framework review.
Full Budget 2025 document delivered 26 November 2025; vehicle for Finance Bill 2025-26 tax measures and the strengthened fiscal framework.
Multi-year departmental envelopes published 11 June 2025 setting Resource and Capital DEL baselines through 2028-29.
Vehicle for annual tax measures and tax administration changes announced at Autumn Budget 2025; includes amendment to the Budget Responsibility and National Audit Act 2011 on annual fiscal-rules assessment.
HMT framework setting out the approach to managing financial transactions under the fiscal framework.
Annual review of the Women in Finance Charter signatories, showing 71% on track to meet senior-management targets and 37% average female representation in senior roles.
OBR's March 2026 EFO accompanying the Spring Forecast statement; first EFO under the revised Charter's one-major-event-a-year settlement.
Lords Committee scrutiny report on the post-2024 fiscal framework, the Charter and OBR architecture.
Public Accounts Committee scrutiny of the consolidated public finances on the basis of the 2023-24 WGA, taking evidence from HMT and MHCLG.
PAC recommendation to HM Treasury to develop a streamlined financial reporting regime for small, low-risk central government bodies — engages PEFA-style accountability framework.
Lords Library briefing on the 3 March 2026 Spring Forecast Statement and the Finance (No.2) Bill, including OBR forecasts.
Commons Library scrutiny briefing on the 26 November 2025 Budget and Finance Bill remaining stages.
Standard Note explaining the OBR's statutory functions and role within the fiscal framework.
Directly implements a Budget 2025 commitment on diversifying the gilt/T-bill investor base — debt management is core to the framework.
Tax-policy consultation feeding directly into Finance Bill 2025-26 — core annual tax legislation.
Our fiscal rules are non-negotiable.
Why linked: Cited verbatim by Chief Secretary and Exchequer Secretary on Second Reading of the Budget Responsibility Bill, underpinning the Charter and the fiscal lock.
the government strengthened the fiscal framework to deliver on its commitment to hold one major fiscal event per year
Why linked: Stated commitment in HCWS1275 and the Charter for Budget Responsibility: Autumn 2025 — drives the statutory annual OBR rules-assessment design.
Why linked: Finance Bill 2025-26 Public Bill Committee amendments — Bill progress.
Explanatory Notes for government amendments in Public Bill Committee of Finance Bill 2025-26.
Why linked: Lords debate on Government Performance against Fiscal Rules — direct scrutiny of the framework.
Lords Chamber debate | Lords
Why linked: Commons debate on Government Performance against Fiscal Rules — direct scrutiny of the framework.
Commons Chamber debate | Commons
Why linked: Lords Finance Bill second reading debate enacting Budget 2024 measures (non-dom, CGT, EPL, VAT on schools, IHT) — primary operationalising debate.
Second Reading (and remaining stages) 17:48:00 Moved by Lord Livermore: That the Bill be now read a second time. The Financial Secretary to the Treasury (Lord Livermore) (Lab): My Lords, it is a pleasure to open this Second Reading debate …
Why linked: Lords Finance Bill First Reading — procedural step.
First Reading 15:35:00 The Bill was brought from the Commons, read a first time and ordered to be printed.
Why linked: Commons Finance Bill 2024-25 consideration stage — direct legislative milestone.
Consideration of Bill, n ot amended in the Committee and as amended in the Public Bill Committee [Relevant document: Correspondence between the Joint Committee on Human Rights, the Chancellor of the Exchequer and the Exchequer Secretary to the Treasury, on …
Why linked: Public Bill Committee third sitting on Finance Bill 2024-25.
The Committee consisted of the following Members: Chairs: David Mundell, † Valerie Vaz † Ballinger, Alex (Halesowen) (Lab) Blake, Rachel (Cities of London and Westminster) (Lab/Co-op) † Caliskan, Nesil (Barking) (Lab) † Cross, Harriet (Gordon and Buchan) (Con) † Davies, …
Why linked: Lords Fiscal Rules statement on 29 October 2024 — the moment the new framework was set out to Parliament.
Lords Chamber debate | Lords
Why linked: Commons Fiscal Rules debate 28 October 2024 — companion to the Lords Fiscal Rules statement.
Commons Chamber debate | Commons
Why linked: Budget Responsibility Bill 2024 committee stage — the first piece of post-election legislation strengthening OBR powers.
Considered in Committee [Ms Nusrat Ghani in the Chair ] The Chairman of Ways and Means (Ms Ghani): I remind Members that, in Committee, Members should not address the Chair as “Deputy Speaker”. Please use our names when addressing the …
Why linked: Foundational SI under the Bank of England Act 1998 extending FPC macro-prudential measures to holding companies — a statutory hook in scope.
This Order makes amendments to:
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The UK's fiscal and monetary framework now sits in steady operational mode after a two-year rebuild. The Budget Responsibility Act 2024 inserted a statutory 'fiscal lock' requiring an Office for Budget Responsibility (OBR) report on any measure costing 1% of GDP or more 1; the Charter for Budget Responsibility approved by Parliament on 29 January 2025 2 codified the new current-budget rule; and the Autumn 2025 Charter update 3 together with the Finance (No.2) Bill 2025-26 4 legislate one major fiscal event a year and a statutory annual OBR rules assessment — the headline IMF-recommended reform 5. The HM Treasury (HMT) – Bank of England Memorandum of Understanding 2025 6 concluded the 5-yearly capital-framework review, completing the institutional layer. The March 2026 Economic and Fiscal Outlook 7 is the first EFO under the revised regime, and the Spending Review 2025 8 sets multi-year departmental envelopes through 2028-29.
The framework is operationally live. The Charter for Budget Responsibility was approved by Parliament on 29 January 2025 1 and updated in the Autumn 2025 version laid before both Houses by Written Ministerial Statements (HCWS1275 / HLWS1276) on 27 January 2026 23, with technical changes to deliver the statutory annual OBR rules-assessment policy announced at Budget 2025 4. The Finance (No.2) Bill 2025-26 5 is the legislative vehicle: it carries the amendment to the Budget Responsibility and National Audit Act 2011 enacting the annual fiscal-rules assessment, plus tax measures from Autumn Budget 2025 including the transfer-pricing / permanent-establishment / diverted-profits-tax reform 6 and pensions inheritance-tax changes 78. The Spending Review 2025, published 11 June 2025 9 with supporting departmental efficiency plans 10 and supplementary distributional analysis 11, sets Resource and Capital DEL through 2028-29. On the monetary side, the 2025 HMT–Bank MoU 12 formalised the conclusion of the 5-yearly capital-framework review announced via WMS HCWS456 / HLWS450 1314. The macro-prudential perimeter has been operational since SI 2021/869 15 extended FPC powers under sections 9I/9L of the Bank of England Act 1998 to bank and investment-firm holding companies on a consolidated basis. The OBR Chair vacancy is the live institutional question: Richard Hughes resigned on 1 December 2025 and the HMT recruitment campaign launched February 2026.
Three developments dominate the last six months. First, the Charter for Budget Responsibility: Autumn 2025 1 was laid before Parliament on 27 January 2026, codifying the one-fiscal-event-a-year settlement and the statutory annual OBR rules assessment, responding directly to IMF recommendations 2. Second, OBR published its March 2026 Economic and Fiscal Outlook 3 alongside the Spring Forecast Statement on 3 March 2026 — the first EFO under the revised regime — and a substantial volume of PQs in late March 2026 probed forecast detail. Third, the Lords Economic Affairs Committee published its 4th Report 'Fortifying the fiscal framework' 4 on 28 April 2026, providing the first formal cross-House review of the post-2024 architecture. Alongside these headline developments, the HMT/DMO consultation on expanding the UK Treasury bill market closed 5, the Subsidy Advice Unit reported on the retail, hospitality and leisure business-rates multipliers and pubs and live music venues relief scheme 6, and the Public Accounts Committee published its 77th Report on accountability in small government bodies 7 pressing HMT for a streamlined small-body financial-reporting regime.
Four watch-points over the next 12 months. (1) OBR Chair appointment. Richard Hughes's December 2025 resignation leaves a vacancy at the institutional centre of the framework; the HMT recruitment campaign opened February 2026 and Treasury Committee pre-appointment hearing will follow 1. The successor's stance on the new annual rules-assessment role will be the first practical test of the Autumn 2025 Charter reforms 2. (2) Autumn Budget 2026. This is the first Budget under the one-fiscal-event-a-year settlement, where the statutory annual OBR rules assessment will sit alongside the Budget for the first time under Finance (No.2) Bill 2025-26 amendments to BRANAA 2011 34. Headroom against the fiscal mandate will be the binding constraint. (3) Government response to the Lords Economic Affairs Committee Report. 'Fortifying the fiscal framework' 5 tested the post-2024 design directly; the formal response is expected within two months and will signal whether further Charter amendments are in scope. (4) UK Treasury bill market reforms. The DMO consultation 6 is the live debt-management element of the framework; an outcome paper and any operational changes will feed into the 2026 gilt remit and the wider growth and fiscal-credibility narrative the IMF endorsed in July 2025 7. Beyond these, watch the macro-prudential perimeter: a CPI deviation above 1pp could trigger another open letter from the Governor under the HMT–Bank MoU 8.
Three risks bear naming. First, fiscal headroom risk: the move to one major fiscal event a year 1 removes a release valve for in-year fiscal news, concentrating market sensitivity onto the Budget; if a deterioration emerges between Budgets the government has reduced procedural room to respond. Second, OBR institutional risk: with the Chair vacancy live and the new statutory annual rules-assessment regime starting at Autumn Budget 2026, the next OBR Chair appointment carries unusual weight — Treasury Committee pre-appointment hearing scrutiny will matter 2. Third, Inferred from corpus gap: monetary policy is in scope per the thread definition but the corpus is heavily fiscal — only HMT–Bank Open Letters and the 2025 MoU 3 surface; the wider MPC reaction function, inflation-target framework debate and operational independence questions are silent in the events list and would need separate work. Inferred from corpus gap: the corpus also contains no event giving the new OBR Chair recruitment a definitive interview / appointment date — the February 2026 launch is on a candidate page only. Inferred from corpus gap: the Treasury Committee's draft Finance Bill 2025-26 scrutiny 4 closed 7 October 2025 but the corresponding committee report is not in the events list, so the committee's substantive position is read from process rather than published con
The UK's fiscal-monetary framework is layered. The outer layer is operational independence: the Bank of England Act 1998 delegates monetary policy to the MPC under an HMT-set remit, and the Budget Responsibility and National Audit Act 2011 delegates fiscal forecasting and rules-assessment to the OBR. Neither body sets the policy targets — HMT does — but both are insulated from setting their own marking criteria, which is the architectural choice that distinguishes the UK from a pure Treasury-run regime.
The middle layer is the Charter for Budget Responsibility, a statutory document the Treasury lays and Parliament approves by resolution. The Charter contains the fiscal mandate (current budget rule) and the supplementary debt rule, both expressed over a rolling five-year horizon. Crucially the Charter is the document that sets the 'fiscally significant' threshold (1% of GDP) for the section 4A 'fiscal lock' inserted by the Budget Responsibility Act 2024. Without the Charter, the lock has no operative threshold.
The inner layer is the annual cycle: one Budget per year (now codified in the Autumn 2025 Charter) accompanied by an OBR EFO and, from Finance Bill 2025-26 onwards, a statutory OBR rules-assessment; a Spending Review every two-to-three years setting departmental DEL envelopes; and the Finance Bill renewing annual taxes and enacting Budget measures. The Spring Forecast statement persists but is now a forecast event, not a fiscal event.
The macro-prudential layer sits alongside, not within, the fiscal framework: the FPC directs the PRA via measures prescribed in Treasury orders under sections 9I and 9L of the Bank of England Act 1998. SI 2021/869 widened the perimeter to holding companies on a consolidated basis, addressing a gap exposed by the post-Basel III Single Rule Book. The HMT–BoE MoU 2025 governs the financial relationship including indemnity for QE/QT losses.
What the regime cannot do: it cannot bind future Parliaments to a particular Charter, it does not give the OBR a veto, and it does not constrain the Bank's operational independence in setting policy rates. The 2024 fiscal lock only requires a report; ministers can still announce measures, and Parliament can still vote them through, regardless of OBR analysis.
A measure (or combination of measures) with a costing of at least 1% of GDP within the forecast horizon, as specified in the Charter for Budget Responsibility.
The Charter-set primary fiscal rule requiring the current budget to be in balance or surplus by year five of the rolling forecast.
An FPC direction applied to a UK bank or investment firm's holding company in respect of the whole group (or sub-group), rather than to individual regulated entities.
OBR's statutory assessment of whether the government's stated fiscal rules are being met on its central forecast.
Appointment of a new OBR Chair following Richard Hughes's December 2025 resignation; HMT recruitment campaign opened February 2026.
Government response to the UK Treasury bill market consultation (closed 5 May 2026 per gov.uk page).
Government response to the Lords Economic Affairs Committee's 'Fortifying the fiscal framework' Report.
Autumn Budget 2026 — first Budget under the one-fiscal-event-a-year Charter with statutory OBR annual rules assessment.
Royal Assent of the Finance (No.2) Bill 2025-26, including the BRANAA 2011 amendment on annual fiscal-rules assessment.
On the fiscal framework: stated commitment to 'non-negotiable' fiscal rules and to legislating the fiscal lock plus one fiscal event a year, framing this as the structural fix for credibility post-2022 mini-Budget.Jan 2025Jan 2025
Tension with Nigel Huddleston, Andrew Griffith
On Finance Bill 2025-26 and HMT–BoE MoU: led Lords-side delivery of the Budget legislation, Charter laying and the updated 2025 HMT–BoE financial-relationship MoU concluding the 5-yearly capital framework review.Jul 2025Feb 2025Mar 2025
On Finance Bill 2025-26 draft legislation: published draft tax legislation in July 2025 ahead of the Bill, emphasising government commitment to consultative tax policymaking.Jul 2025
On the HMT–Bank financial relationship: announced the conclusion of the 5-yearly review of the Bank's capital framework parameters under the Financial Relationship MoU section 2B.Feb 2025
On the Autumn 2025 Charter: laid the draft Charter via HCWS1275 setting out the IMF-driven move to a statutory annual OBR rules assessment at Budget.Jan 2026
On the Budget Responsibility Bill 2024: argued the fiscal lock should also bite when the Government changes the definition of debt in its fiscal rules, not just when a 1%-of-GDP measure is announced — moved amendment 9 to that effect.Sep 2024
Tension with Rachel Reeves
On the Budget Responsibility Bill: supported the Bill but proposed widening 'fiscally significant' to capture measures below the 1%-of-GDP threshold that would affect interest rates, the cost of government borrowing, or growth — and giving the OBR a route to notify the Independent Adviser on Ministers' Interests.Sep 2024
On the Budget Responsibility Bill: supported the legislation but probed it via amendments 6-7 to capture the cumulative fiscal impact of PFI-type contingent liabilities below the 1%-of-GDP threshold; called private finance 'the legal loan-sharking of the public sector'.Sep 2024
On the Budget Responsibility Bill: opposed the Bill as a 'disreputable' transfer of parliamentary responsibility to the OBR, arguing the 1%-of-GDP threshold and 'temporary measure' exemption created loopholes.Sep 2024
Tension with Rachel Reeves
On the Budget Responsibility Bill: criticised the fiscal lock as offering only quantitative OBR assessment, no qualitative review, and not protecting devolved budgets from spending decisions like the winter fuel allowance restriction.Sep 2024
Endorsed the UK's Plan for Change growth mission and the strengthened fiscal framework in July 2025; recommended an annual OBR rules-assessment which the government accepted via the Autumn 2025 Charter.Jul 2025
Published 'Fortifying the fiscal framework' (4th Report, April 2026) — direct scrutiny of the post-2024 regime architecture.Apr 2026
Cross-cutting scrutiny of public spending and Whole of Government Accounts; the 77th Report pressed HMT to develop a streamlined financial-reporting regime for small low-risk bodies — engaging the PEFA-style accountability framework.Mar 2026