It would get the discussion started in view of the public. If memory serves me correctly, (which is getting more iffy every day) prior to Woodrow Wilson the various departments submitted their respective budgets to Congress and each were dealt with separately. They may have been on to something. For what it is worth, if I were POTUS, anything that says “Congressional” and “requires that the President” would probably get me not to do it or at least not to do it when and how they wanted me too. Just because the Congress doesn’t get to “require” me the Executive to do squat.