The TIPS program would have allowed volunteers, including letter carriers and utility workers whose routines make them well-positioned to recognize suspect activities, to report suspect behavior to the Justice Department. It was scheduled to begin next month in 10 cities, with 1 million informants initially participating in the program.

"Mr. Armey believes there are other and better ways to involve citizens in the protection of the homeland," said Richard Diamond, the congressman's press secretary. "There are traditional ways of pitching in, helping out, like becoming a volunteer firefighter."

The 216-page bill, sponsored by Mr. Armey, Texas Republican, also bars the creation of national identification cards, despite President Bush's support for them. "Authority to design and issue these cards shall remain with the states," Mr. Armey said.