Congress as a whole should be no different than a board of directors or group of employees. When a board of directors or group of employees fails to act, there are penalties, such as reduction in income, suspension, and eventually termination. When congress fails to perform their duties of passing an annual budget or addressing the public issues that the President sets out for them, congress should suffer similar circumstances.
At a minimum, in a year that congress fails to pass a budget or execute other major initiatives, pay should be suspended for all representatives for that year. If congress fails to pass a budget or execute other major initiatives for 3 consecutive years, all representatives should no longer be eligible to run for public office due to demonstrated inadequacy.