Graham's death complicates myriad GOP goals in Congress

Graham, R-S.C., who died at 71, was a titan of the Senate whose close relationship with President Donald Trump helped the upper chamber broker numerous deals and secure aid for allies such as Ukraine. Graham, who chaired the Senate Budget Committee, was integral to passing Trump's marquee reconciliation tax-and-spending law, known as the "one big, beautiful bill."

He also served on the Appropriations, Judiciary, and Environment and Public Works Committees and was known to work across the aisle on policy issues.

Graham's death comes as the Senate works to advance many of Trump's priorities before heading into a tough midterm election in November, and his passing is likely to complicate those efforts. Included in the long list of unfinished business is the SAVE America Act, Trump's sought-after voter-ID bill; a third reconciliation bill to address affordability and replenish the military; and the confirmation of Attorney General nominee Todd Blanche.

Graham was a staunch advocate for the SAVE America Act , Trump's laundry list bill to require voter ID and proof of citizenship to vote, along with several other White House priorities. Trump has been almost singularly focused on the bill, despite its steep odds of becoming law.

Trump, in a Sunday call on NBC's "Meet the Press," lamented that the SAVE America Act will be harder to pass without Graham's support.

"This is a big blow to the Save America Act, let me tell you," Trump said. "He was pushing for the SAVE America Act like crazy."

The SAVE America Act, especially the version being pushed by Trump, faced steep odds of becoming law with or without Graham. It was far short of the 60 votes needed to overcome the Senate filibuster, given strong Democratic opposition.

Graham's death, however, will make it more difficult for the Senate to communicate the steep odds of passing the SAVE America Act. Trump noted that he spoke with Graham Saturday night about the bill.

"He called, and he said we're all set for the Save America Act," Trump said. "He literally called me about the Save America Act."

Graham would have been integral to any additional reconciliation packages Republicans aim to pass by the end of this year. The Budget Committee steers reconciliation bills, which must be budget-centric and comply with the Byrd Rule — an arcane Senate process that allows the upper chamber to skirt the 60-vote filibuster.

Congress has already passed two reconciliation bills this year, including the one big, beautiful bill and a bill to fund immigration enforcement agencies after federal agents from those agencies shot and killed two American citizens earlier this year.

A third package — still not entirely fleshed out and largely in flux — was expected to include military spending to replenish stockpiles depleted by the war with Iran, affordability issues and fraud.

Graham's death now throws into disarray any planning he had done for that bill and leaves the Budget Committee without a chairman.

Trump's pick for Attorney General, acting AG Todd Blanche, now faces a new hurdle to Senate confirmation.

Graham served on the Judiciary Committee and was next in line to take the gavel when the term of Chair Chuck Grassley, R-Iowa, ends. The Committee includes 12 Republicans and 10 Democrats, meaning any Republican defection, along with full Democratic opposition, would result in a deadlock. Graham's death brings that tally to 11 Republicans and 10 Democrats.

Sen. Thom Tillis , R-N.C., who is retiring at the end of his term and also serves on the Judiciary Committee, is currently undecided on Blanche's nomination, though he said he has a positive predisposition toward him and has met with Trump's former personal attorney. Should Tillis defect now, along with all Democrats, Blanche's nomination would fail 11-10.

Graham has been one of Ukraine's staunchest supporters as it repels Russia's invasion that began in 2021. He has been critical in shepherding money through Congress and greasing the wheels for Trump to support aid to Ukraine.