Mr. Silver said the rank-and-file legislators are responsible for the current system because they elect the leaders and set the rules.

But any reservations about the project were moot because of the new open budget process, which allowed rank-and-file legislators to debate budget priorities in public meetings.

Efforts to reach a compromise on a capital-gains tax cut are being complicated by opposition from rank-and-file legislators in both parties.

"Nothing happens here in Albany, in the Assembly, without the input of the rank-and-file legislators," he said.

The commission had previously recommended 25 percent pay raises for rank-and-file legislators, to $23,500 a year.

The newly open budget process, which rank-and-file legislators embraced, has improved their view of the Speaker.

The talks have not included rank-and-file legislators, who tonight still had yet to be given details on paper.

For the first time, the budget was hammered out in conference committees, with the involvement of many rank-and-file legislators, rather than in secret meetings among state leaders.

So far, the Senate's majority party has talked a good game when it comes to open government or giving some say to rank-and-file legislators.

Both houses also changed their procedural rules in ways they said would give more power to rank-and-file legislators.