Like Sausage-Making, Reforming Health Care Is a Messy Business

By Joel Achenbach
Washington Post Staff Writer
Saturday, August 1, 2009

The bill, a work in progress called H.R. 3200, is already phone-book thick. The latest amendments this week swamped Room 2123 of the Rayburn House Office Building, home turf of the Energy and Commerce Committee. Some 250 amendments had appeared by Wednesday night, and the number jumped to 350 by Thursday afternoon. The amendments filled 39 file boxes on chairs, under desks and in the aisles.

"The minority has one more amendment on Title B, after the Murphy amendment," Rep. Joe L. Barton of Texas, the committee's ranking Republican, said on Thursday afternoon. "Two? Three? We're growing like weeds over here."

The committee finally approved its version of health-care reform late Friday, and it wasn't easy, coming only after liberal Democrats cut a deal with more conservative colleagues on how to trim the cost of the America's Affordable Health Choices Act of 2009.

The popular metaphor for the process is, needless to say, sausage-making. As Rep. John B. Larson (Conn.), head of the House Democratic Caucus, said Wednesday as he raced to his eighth meeting of the day, "Two things that shouldn't be observed: the sausage being made and a bill becoming law."

This was a particularly epic week in the legislative sausage industry. Both chambers have, between them, three health-care reform bills -- one in the House and two in the Senate. Only one of the Senate bills has won committee approval.

Three House committees have labored on various parts of their chamber's bill, H.R. 3200. The huge cut-and-paste job now goes to the House Rules Committee, to be smoothed out into a final product to send to the House floor.

Almost every major provision of health reform remains very much in play. No one knows whether Congress will produce one of the most colossal sausages in American history or just a bunch of scraps for the compost bin. Only one decision has been made in the past week that has sounded firm, definitive and immutable: the decision to postpone a final vote until after everyone comes back from a five-week vacation.

All week, there were closed-door meetings among disparate ideological factions. The negotiations are invisible not only to the media and the public, but also to most other members of Congress. Reporters stake out hallways and shove tape recorders at speed-walking congressmen who generally say nothing more compelling than, "We're making progress." White House Chief of Staff Rahm Emanuel spent so much time in the office of House Speaker Nancy Pelosi (D-Calif.) this week that she could have charged him rent.

Any deals appear to be provisional, subject to backtracking, renegotiation or outright annulment. Party leaders can tell unhappy members of Congress that any particular version of the bill now being considered is not actually the bill that will come to the floor. Democrats have large majorities in both chambers, but they have discovered the perils of being a party that yokes together Northern California liberals and Deep South good ol' boys.

"I think this is getting very hard. The clock is ticking," Rep. Jane Harman (D.-Calif.) said during a particularly tense period Wednesday. "Hours and hours and hours and hours have been spent [in meetings] by all the big players. I haven't heard any good news."

Then came "good news" of a compromise reached by House leaders and a handful of moderate-to-conservative Blue Dog Democrats -- but it infuriated the liberals.

"We've already compromised. We're not going to compromise anymore," said Rep. Lynn Woolsey (D.-Calif.), co-chairman of the Progressive Caucus, which said in a letter to Pelosi that the Blue Dog deal was "fundamentally unacceptable."

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