It also advocates more emphasis on arts education, incentives to give more charitable donations to antipoverty groups and an end to state lotteries.

He also proposes a Federal tax credit of up to $500 for contributions to antipoverty groups, in addition to the current tax deduction for charitable donations.

In recent weeks, many House Democrats, governors of both parties and antipoverty groups have denounced stricter work requirements, saying they cannot be achieved.

Mr. Clinton and antipoverty groups say the tax credit is a way to reward work.

His status as an evangelical Christian and the founder of an antipoverty group called Democrats for the Soul has enhanced his power.

This year has been a tough one for charities and other nonprofit organizations, from arts enterprises to antipoverty groups to universities.

Some state officials and antipoverty groups, including many who opposed the 1996 law, say the new work requirements are unrealistic.

Mr. Packwood said some antipoverty groups wanted to tinker with welfare programs while preserving the entitlement to benefits for the poor.

"The money can go to college, but the people can't," said Michael Kink, a lobbyist for Housing Works, an antipoverty group.

The Nepalese project had been opposed for years by many private environmental and antipoverty groups.