Washington ? Congress adjourned for the year Friday without extending jobless benefits that will soon lapse for about 1 million people, but it did send President Bush the bill merging 22 agencies into a new Homeland Security Department.

By a voice vote of the few lawmakers around, the House completed action on the homeland bill by approving technical changes the Senate had made. That nailed down a victory for Bush, who plans to sign the measure Monday and nominate Homeland Security Director Tom Ridge to head the Cabinet-level agency.

Bush plans to sign a bill Tuesday creating a federal role in insuring property against destruction by terrorists. On Wednesday, he will sign legislation establishing an independent commission to investigate how the Sept. 11 attacks occurred and paving the way for big spending increases for intelligence agencies.

Democrats fleetingly threatened to delay passage of the homeland bill until next week. They said the 107th Congress should not leave town without helping laid-off workers facing the expiration of federal unemployment compensation starting Dec. 28.

“Congress is here insisting on playing Scrooge at Christmastime when we ought to be showing a little mercy,” said Rep. David Obey, D-Wis.

The Republican-run House voted last week to keep paying the benefits until as late as Feb. 2, while the Democratic-led Senate approved a version extending them to at least March 29. Senators of both parties offered a scaled-down compromise this week to House GOP lawmakers, who refused to consider it.

House Majority Leader Dick Armey, R-Tex., who is retiring, said the GOP-controlled House and Senate would consider the issue when the 108th Congress convenes in January. Armey spokesman Greg Crist said lawmakers may discuss providing extra benefits to make up for lost weeks of coverage.

In March, Congress created a 13-week extension in federal jobless benefits for laid-off workers who have used up the maximum 26 weeks of coverage they generally receive from the states.

That 13-week extension starts expiring Dec. 28, when an estimated 820,000 people will lose coverage. Each week 95,000 more will follow.

Traveling with Bush to Russia, White House spokesman Ari Fleischer tried to distance the president from the issue, refusing six times to state Bush’s position on extending benefits.