But one leading Congressional scholar, Thomas Mann of the Brookings Institution, said that "all of the energy is on the Republican side."

Richard Fenno, a Congressional scholar at the University of Rochester, said, "It's a poor strategist who can't find something wrong in a 1,300-page bill."

A leading Congressional scholar, Mr. Ornstein said that was "about as ridiculous a stereotype as you can imagine."

Congressional scholars had trouble recalling another instance when a lawmaker without a seat on the committee with jurisdiction had so much influence over such important legislation.

"After last year, what fascinates me is how much the whole effort has become ad hoc," said Thomas Mann, a Congressional scholar at the Brookings Institution.

Richard A. Baker, the Senate historian, said he did not know of any Congressional scholar who has analyzed how bills are named.

Thomas E. Mann, a Congressional scholar at the Brookings Institution, said the issue the retirements raised for the Senate was not one of political philosophy.

Tom Mann, a Congressional scholar at the Brookings Institution, said never before had as many committees jumped at an issue at once.

Thomas E. Mann, a Congressional scholar at Brookings, said the process amounted to neither sellout nor setback.

Thomas Mann, a Congressional scholar at the Brookings Institution, said: "It's not as if there's unanimity on this front.