This is the follow on response from Ed Orcutt to my question.
Orcutt, Rep. Ed Add to contactsTo jt59
From: Orcutt, Rep. Ed (Ed.Orcutt@leg.wa.gov)
Sent: Thu 4/14/11 11:25 PM
These bills concern me as well. It is an oft used method to keep options open to balance (implement) the budget, but I think more thought and detail should go into them prior to being introduced.
But every bill is subject to amendment in committee and on the floor of each chamber so changes can be made to any bill after introduction as long as it fits under the scope of the title.
Some of these bills have broader titles to enable greater latitude in what can be amended onto the bills. Broad titles can pose risk for whoever introduces them as once it is introduced, a member is at the mercy of the legislative majority.
Good, bad, or indifferent, that is the way it works. Ed