By Michael D. Shear and Chris L. Jenkins
Washington Post Staff Writers
Sunday, April 16, 2006; C01

RICHMOND -- The anger that flashed in Virginia Del. Vincent F. Callahan Jr.'s eyes betrayed the total breakdown of civil discourse with his adversaries in the state Senate.

"Little Napoleons," the Fairfax County Republican said. "They seem hellbent on closing down government to get their way."

Minutes after the Wednesday afternoon outburst, a reply came from Fairfax's longtime Democratic senator, Richard L. Saslaw, who accused Callahan of "taking marching orders from people who weren't even born" when Callahan joined the House in 1968.

Personal and professional relationships in the Virginia legislature have collapsed, even between men like Callahan and Saslaw, who have represented Fairfax for several decades. In the Capitol, where courtly manners have long defined the "Virginia way," years of simmering distrust between the House and Senate have erupted into open hostility.

The consequences go beyond the political fortunes of the lawmakers and the parties they represent. For Virginians, the legislative nastiness will have repercussions on the way they live.

If House Republicans get their way, long-term investments in the state's transportation network will be put off for months at least. House leaders say the bitter debate over new taxes for roads and transit should be delayed in the interest of reaching a deal on the state's two-year budget.

Senators, meanwhile, say their push for a $1 billion-a-year tax increase for transportation improvements is worth the risk of a government shutdown if the state has no approved budget on July 1. They have refused to negotiate the spending plan until House Republicans agree to raise taxes.

Either way, Virginians are not likely to see a resolution within the next several weeks, say lawmakers, lobbyists and longtime observers of state politics.

It has been a month since the state's General Assembly ended and Gov. Timothy M. Kaine (D) called lawmakers into a special session.

Budget negotiators for the two sides have not met. House Speaker William J. Howell (R-Stafford) last week refused to attend a private lunch with Kaine and Senate Finance Chairman John H. Chichester (R-Northumberland). Both chambers have yet to complete the procedural motions required to officially negotiate.

"At the heart of this debate is the philosophical role of government" and how transportation fits into governmental responsibility, said Robert D. Holsworth, a professor of government at Virginia Commonwealth University. "There's a sense from the House that if they go along with these tax increases they will be helping set Virginia on a course . . . that every time there's a budget crisis, the state government should just raise taxes."

House Republicans insist that is not going to happen this year.

They say the state is running a billion-dollar surplus and that increasing taxes statewide for better roads is unnecessary as the economy continues to boom. And they insist that the Senate has unconstitutionally embedded the $1 billion tax increases into its budget, not through the normal channels of the legislative process.

"Governor Kaine and Senate leaders are holding the people of Virginia hostage to their only recently discovered means of trying to raise taxes through the state budget," Howell said.

He called the Senate position "reckless" and added that "the good people of Virginia are not bargaining chips. They deserve far more from their elected representatives than to be treated like pawns in a game."

As important as transportation funding is, Howell's delegates said it should be discussed later, after the state spending plan for such programs as education is complete.

Appearing to minimize the importance of transportation funding could be politically dangerous, especially for Republican delegates from Northern Virginia, where traffic congestion is acutely felt.

But many delegates say they are defending the power of the institution they serve. In 2004, House Republicans were vilified for standing against Gov. Mark R. Warner's package of tax increases. That very public loss to a Democratic governor is still seared in the GOP caucus's memory, several members said, and they have cited it as a reason for their stiffer backs this year.

"I'm not going to have something shoved down my throat by John Chichester," said Clarke N. Hogan (R-Charlotte), who opposed the tax increases in 2004. "That is the predominant thought in our caucus. We took . . . so much abuse. We're hardened up from that."

Republican delegates use history as their guide, pointing to 1986, the last time Virginia raised taxes for transportation. Gov. Gerald L. Baliles (D) called a special session for transportation after the budget for schools, public safety and public health was completed earlier in the year. Republican leaders said the state should do that again.

"We will hold our line here, because what they are doing to the constitution, I think, is reprehensible," Callahan said.

In a letter to Callahan last week, the five senators responsible for negotiating the state's budget and resolving the deadlock made it plain where they stood.

The Senate, they wrote, demands "a significant, sustainable, long-term revenue stream for transportation -- one that does not pit education, health care, public safety and transportation against one another for general-fund dollars. They will accept nothing less."

Chichester and other leading senators have rejected House leaders' pleas to set transportation aside and resolve the rest of the state budget now. In fact, senators of both parties said they believe that House Republicans will eventually buckle under the public pressure to do something about the crowded roads.

If a budget is not adopted by July 1, many functions of state government could shut down. State parks could close. Summer school could end. Local governments could lose funding for their programs. And all nonessential state services could be put on hiatus.

Kaine vowed Thursday to use his powers as chief executive to keep the state's basic functions operating "until someone with the power to, tells me not to."

Senior senators in Northern Virginia and Hampton Roads offered plans last week that would raise extra money for their roads. But the ideas stalled after several senators worried aloud that passing such a plan could relieve the pressure on Republican delegates.

Said Sen. R. Edward Houck (D-Spotsylvania), a budget negotiator: "I'm just fearful that these regional approaches just gives them the political alibi not to do what needs to be done."