WASHINGTON (AP) — The Senate took the first step to end the government shutdown on Sunday after a group of moderate Democrats agreed to proceed without a guaranteed extension of health care subsidies, angering many in their caucus who say Americans want them to continue the fight.

In a test vote that is the first in a series of required procedural maneuvers, the Senate voted 60-40 to move toward passing compromise legislation to fund the government and hold a later vote on extending Affordable Care Act tax credits that expire Jan. 1. Final passage could be several days away if Democrats object and delay the process.

The agreement does not guarantee the health care subsidies will be extended, as Democrats have demanded for almost six weeks. Senate Democratic leader Chuck Schumer of New York voted against moving ahead with the package, along with all but eight of his Democratic colleagues.

A group of three former governors — New Hampshire Sen. Jeanne Shaheen, New Hampshire Sen. Maggie Hassan and Independent Sen. Angus King of Maine — broke the six-week stalemate on Sunday when they agreed to vote to advance three bipartisan annual spending bills and extend the rest of government funding until late January in exchange for a mid-December vote on extending the health care tax credits.

The agreement also includes a reversal of the mass firings of federal workers by the Trump administration since the shutdown began on Oct. 1 and would ensure that federal workers receive back pay.

Senate Majority Leader John Thune quickly endorsed the deal and called an immediate vote to begin the process of approving it as the shutdown continued to disrupt flights nationwide, threaten food assistance for millions of Americans and leave federal workers without pay.

“The time to act is now,” Thune said.

Returning to the White House on Sunday evening after attending a football game, President Donald Trump did not say whether he endorsed the deal. But he said, “It looks like we’re getting close to the shutdown ending.”

Five Democrats switch votes

In addition to Shaheen, King and Hassan, Democratic Sen. Tim Kaine of Virginia, home to tens of thousands of federal workers, also voted in favor of moving forward on the agreement. Illinois Sen. Dick Durbin, the No. 2 Democrat, Pennsylvania Sen. John Fetterman and Nevada Sens. Catherine Cortez Masto and Jacky Rosen also voted yes.

The moderates had expected a larger number of Democrats to vote with them as 10-12 Democratic senators had been part of the negotiations. But in the end, only five Democrats switched their votes — the exact number that Republicans needed. King, Cortez Masto and Fetterman had already been voting to open the government since Oct. 1.

The vote was temporarily delayed on Sunday evening as three conservatives who often criticize spending bills, Republican Sens. Mike Lee of Utah, Rick Scott of Florida and Ron Johnson of Wisconsin, withheld their votes and huddled with Thune at the back of the chamber. They eventually voted yes after speaking to Trump, Lee said.

Another Republican, Sen John Cornyn of Texas, had to fly back from Texas to deliver the crucial 60th vote.

Schumer votes no

After Democrats met for over two hours to discuss the proposal, Schumer said he could not “in good faith” support it.

Schumer, who received blowback from his party in March when he voted to keep the government open, said that Democrats have now “sounded the alarm” on health care.

“We will not give up the fight,” he said.

Independent Sen. Bernie Sanders of Vermont, who caucuses with the Democrats, said giving up the fight was a “horrific mistake.”

Sen. Chris Murphy, D-Conn., agreed, saying that in last week's elections people voted overwhelmingly Democratic “to urge Democrats to hold firm.”

A bipartisan agreement

Democrats had voted 14 times not to reopen the government as they demanded the extension of tax credits that make coverage more affordable under the Affordable Care Act. Republicans said they would not negotiate on health care, but GOP leaders have been quietly working with the group of moderates as the contours of an agreement began to emerge.

The agreement includes bipartisan bills worked out by the Senate Appropriations Committee to fund parts of government — food aid, veterans programs and the legislative branch, among other things. All other funding would be extended until the end of January, giving lawmakers more than two months to finish additional spending bills.

The deal would reinstate federal workers who had received reduction in force, or layoff, notices and reimburse states that spent their own funds to keep federal programs running during the shutdown. It would also protect against future reductions in force through January and guarantee federal workers would be paid once the shutdown is over.

House Democrats push back

House Democrats swiftly criticized the Senate.

Texas Rep. Greg Casar, the chairman of the Congressional Progressive Caucus, said a deal that doesn't reduce health care costs is a “betrayal” of millions of Americans who are counting on Democrats to fight.

“Accepting nothing but a pinky promise from Republicans isn’t a compromise — it’s capitulation,” Casar said in a post on X. "Millions of families would pay the price.”

Rep. Angie Craig of Minnesota posted that “if people believe this is a ‘deal,’ I have a bridge to sell you.”

House Democratic leader Hakeem Jeffries blamed Republicans and said Democrats will continue to fight.

“Donald Trump and the Republican Party own the toxic mess they have created in our country and the American people know it,” Jeffries said.

Health care debate ahead

It's unclear whether the two parties would be able to find any common ground on the health care subsidies before a promised December vote in the Senate. House Speaker Mike Johnson, R-La., has said he will not commit to bring it up in his chamber.

Some Republicans have said they are open to extending the COVID-19-era tax credits as premiums could skyrocket for millions of people, but they also want new limits on who can receive the subsidies and argue that the tax dollars for the plans should be routed through individuals.

Other Republicans, including Trump, have used the debate to renew their yearslong criticism of the law and called for it to be scrapped or overhauled.

Shutdown effects worsen

Meanwhile, the consequences of the shutdown have been compounding. U.S. airlines canceled more than 2,000 flights on Sunday for the first time since the shutdown began, and there were more than 7,000 flight delays, according to FlightAware, a website that tracks air travel disruptions.

Treasury Secretary Sean Duffy said on CNN’s “State of the Union" that air travel ahead of the Thanksgiving holiday will be “reduced to a trickle” if the government doesn't reopen.

At the same time, food aid was delayed for tens of millions of people as Supplemental Nutrition Assistance Program benefits were caught up in legal battles related to the shutdown.

And in Washington, home to tens of thousands of federal workers who have gone unpaid, the Capital Area Food Bank said it is providing 8 million more meals ahead of the holidays than it had prepared for this budget year — a nearly 20% increase.

States face uncertainty as Trump administration tries to reverse SNAP food payments

States administering a federal food aid program serving about 42 million Americans faced uncertainty Monday over whether they can — and should — provide full monthly benefits during an ongoing legal battle involving the U.S. government shutdown.

President Donald Trump’s administration over weekend demanded that states “undo” full benefits that were paid under the Supplemental Nutrition Assistance Program during a one-day window between when a federal judge ordered full funding and a Supreme Court justice put a temporary pause on that order.

A federal appeals court now is considering whether to impose a longer halt to the full benefits. And Congress is considering whether to fund SNAP as part of a proposal to end the government shutdown.

Some states are warning of “catastrophic operational disruptions” if the Trump administration does not reimburse them for those SNAP benefits they already authorized. Meanwhile, other states are providing partial monthly SNAP benefits with federal money or using their own funds to load electronic benefit cards for SNAP recipients.

Millions receive aid while others wait

Trump's administration initially said SNAP benefits would not be available in November because of the government shutdown. After some states and nonprofit groups sued, two judges each ruled the administration could not skip November’s benefits entirely.

The administration then said it would use an emergency reserve fund to provide 65% of the maximum monthly benefit. On Thursday, U.S. District Judge John J. McConnell said that wasn't good enough, and ordered full funding for SNAP benefits by Friday.

Some states acted quickly to direct their EBT vendors to disburse full monthly benefits to SNAP recipients. Millions of people in those states received funds to buy groceries before Justice Ketanji Brown Jackson put McConnell's order on hold Friday night, pending further deliberation by an appeals court.

Millions more people still have not received SNAP payments for November, because their states were waiting on further guidance from the U.S. Department of Agriculture, which administers SNAP.

Trump's administration has argued that the judicial order to provide full benefits violates the Constitution by infringing on the spending power of the legislative and executive branches.

States are fighting attempt to freeze SNAP benefits

On Sunday, the Trump administration said states had moved too quickly and erroneously released full SNAP benefits after last week’s rulings.

"States must immediately undo any steps taken to issue full SNAP benefits for November 2025,” Patrick Penn, deputy undersecretary of Agriculture, wrote to state SNAP directors. He warned that states could face penalties if they did not comply.

Wisconsin, which was among the first to load full benefits after McConnell’s order, had its federal reimbursement frozen. As a result, the state’s SNAP account could be depleted as soon Monday, leaving no money to reimburse stores that sell food to SNAP recipients, according to a court filing submitted by those that had sued.

Some Democratic governors vowed to challenge any federal attempt to claw back money.

In Connecticut, Democratic Gov. Ned Lamont said “those who received their benefits should not worry about losing them.”

“No, Connecticut does not need to take back SNAP benefits already sent to the 360,000 people who depend on them for food and who should have never been caught in the middle of this political fight,” Lamont said. “We have their back.”

Flight cancellations and delays worsen as government shutdown drags on

NEW YORK (AP) — The pain Americans are facing at airports across the country is expected to get worse this week if Congress is unable to reach a deal to reopen the federal government.

U.S. airlines canceled more than 1,500 flights Saturday and more than 2,900 Sunday to comply with an FAA order to reduce traffic as some air traffic controllers, who have gone unpaid for nearly a month, have stopped showing up for work.

As of early Monday, airlines had already canceled nearly 1,600 flights for Monday and nearly 1,000 for Tuesday.

The Senate took a first step toward ending the shutdown Sunday, but final passage could still be several days away and experts have said it will take time for flights to go back to normal even after the government reopens.

Many airports are facing significant delays for flights that haven’t been canceled as well, with airports in Newark, Orlando, Chicago and Detroit all facing departure delays of more than an hour and increasing, according to FlightAware.

This is the second pay period that air traffic controllers have not received any pay for their work. The head of the air traffic controllers union, Nick Daniels, will hold a press conference Monday morning to address the impact the shutdown is having on them.

The delays and cancellations are likely to get worse as airlines are increasingly unable to reposition planes, pilots and flight attendants due to the air traffic controller shortage.

The FAA implemented a 4% mandatory reduction in flights this weekend to manage staffing. That will increase to 6% on Tuesday and 10% reduction by this upcoming weekend. Transportation Secretary Sean Duffy said on “Fox News Sunday” that additional flight cuts of up to 20% might be needed.

“More controllers aren’t coming to work day by day, the further they go without a paycheck,” Duffy said.

The government has been short of air traffic controllers for years, and multiple presidential administrations have tried to persuade retirement-age controllers to remain on the job. Duffy said the shutdown has exacerbated the problem, leading some air traffic controllers to speed up their retirements.

While 4% may sound modest, much of that reduction is happening at 40 of the nation’s busiest and most congested airports. The FAA says the flight reduction is necessary to keep travelers safe as many of the remaining controllers have been putting in long hours and mandatory overtime while the government remains unfunded.

If not addressed soon, the situation could get even worse as the U.S. heads into the busy holiday travel season. Duffy said that air travel may “be reduced to a trickle” by the week of Thanksgiving.