But Mr. Obama has also said his recovery plan must make down-payments on his campaign promises for permanent changes that will reshape the economy, especially for the good of low-wage and middle-class workers. Such changes could carry permanent costs for new energy, education, health care and tax policies.

For example, Mr. Obama previously indicated that he would seek money to develop a national energy grid to harness and distribute power from wind, water and other local alternative energy sources.

Additional money to subsidize local governments’ education costs in the downturn could become a fixture, increasing the once-small federal role beyond its expansion under President Bush. Besides money for school construction and renovations, Congressional aides said they expected an increase in financing to educate students with disabilities and special needs. Officials also are exploring potential increases for Head Start childhood education programs and Pell Grant scholarships for college students.

Rather than propose a one-time tax rebate for all but the most affluent Americans, Mr. Obama is likely to propose what he called during his campaign a “Making Work Pay” tax credit of $500 for eligible individuals and $1,000 for couples. Those who earn too little to pay federal income taxes would receive the credit in the form of a check, intended to offset the payroll taxes they pay for Social Security and Medicare.

Disputes also are percolating in the Obama camp and between Congressional committees over what constitutes spending earmarks for special projects, which Mr. Obama has sworn to oppose. The disputes are similar to, if less testy than, past tiffs between Mr. Bush and Congress.

Democratic leaders in Congress say they are serious about helping Mr. Obama keep the emerging legislation free of the pork-barrel projects that could invite criticism from Republicans and foster public skepticism.

“Every dollar will have to be justified as to whether it is targeted to our economy,” Speaker Nancy Pelosi, Democrat of California, said last week. “This is not a bill that will be an excuse to put things in that otherwise might not be justified.”