Only homeowners in localities that stay under the state’s annual cap on property tax increases would be eligible for the rebate. It would not apply to New York City homeowners, because the tax cap does not apply to the city.

The commission proposed raising the exemption from the state’s estate tax to $5.25 million, from $1 million, and lowering the estate tax rate. Several other proposals would cut taxes paid by businesses; one would trim the corporate income tax, and another would change the way banks are taxed.

While legislative leaders and business groups offered praise for some of the commission’s proposals, many recommendations are controversial, and legislators, whose approval is needed for tax law changes, are divided. The panel said its proposals would cost $2 billion annually, including $1 billion that would go to property tax relief for homeowners.

Mr. Cuomo’s aides said by limiting spending in next year’s budget, the state would have a surplus that could be used for tax cuts.

State Senator Dean G. Skelos of Long Island, the leader of the Senate Republicans, who have advocated tax cuts, said, “The plan must go further.” Republicans control the Senate in coalition with a small group of breakaway Democrats.

But the Assembly speaker, Sheldon Silver, a Manhattan Democrat, suggested a reluctance to set tax-cutting as a priority, saying it was “important that we have the resources necessary to fund vital programs,” like public schools. And, hinting at concern about whether the tax package would be unfair to New York City, he said that any package “should be premised on a principle of fairness to all New Yorkers — city residents, suburbanites and rural residents alike.”

Kathryn S. Wylde, a past supporter of the governor’s agenda who is the president of the Partnership for New York City, a leading business group, also questioned whether the city would get its “fair share.”