Despite the veto threat by Mr. Bush, the emergency spending measure grew steadily in the Senate, where lawmakers often seize on such must-pass legislation to advance pet priorities.

House Republicans, however, said that negotiators in a conference last year promised that the provisions would be included in some "must-pass" legislation, like the supplemental military spending bill.

But because the bill is considered must-pass legislation, it has become a magnet for all sorts of unrelated provisions.

Mr. Stevens countered that unrelated measures were often added to must-pass legislation in the closing days of a Congressional session.

Their plan calls for Mr. Clinton to put his prestige on the line to press for Nafta as the main must-pass legislation for the fall.

They said the leaders might want to keep the military spending bill in reserve as must-pass legislation to which other bills could be attached in a final session-closing measure later this month.

H.R. 1268 was widely regarded as a "must-pass" legislation.

Congressional delays in approving debt limit measures have become routine over the last decade as lawmakers scramble to attach pet initiatives to what they know is must-pass legislation.

But because the bill is viewed as must-pass legislation, it has become encrusted with dozens of unrelated provisions.

Lawmakers pinned their pet programs and policy initiatives to the bill knowing it was must-pass legislation.