Most lawmakers headed home to campaign, with some conservatives grousing, some areas of dispute still remaining and much of the bill still unwritten.

He noted that it comes as lawmakers are heading into the November elections, when control of the House and Senate is at stake.

But as lawmakers head home for the fall campaign season, Congress has done little to alter the earmarking process.

Mr. Frist said he wanted to pass a bill before lawmakers headed home for the Fourth of July recess.

President Bush has gone to his ranch in Texas for a break, Congress is in recess and lawmakers are heading out of town.

The tougher question, which echoed through the months of negotiations over the tax package and continued last week as lawmakers ended the 1989 session and headed home, was fairness.

The early focus on local lobbying also reflects the timing of the confirmation schedule, with lawmakers headed to their home states for the holidays.

Under House rules, a lawmaker can head just one major subcommittee.

The debate is expected to consume the rest of the summer in Congress as lawmakers head into an election season expected to be dominated by issues of national security.

With less than two weeks to go before lawmakers head home after the current legislative session, Medicaid fraud is one of several prominent issues still unresolved in Albany.