But high-income people and some businesses would face new taxes. In an analysis of the House bill, the Congressional Budget Office estimated that people without insurance would pay $29 billion in penalties over the next 10 years, while employers not offering insurance would pay penalties totaling $163 billion.

The Energy and Commerce Committee was unable to deliver a bill when the nation last tried to guarantee universal coverage, under President Bill Clinton, in 1994. Asked what was different this time, the current chairman, Representative Henry A. Waxman, Democrat of California, said: “The leadership of President Obama. He made it a very strong, clear priority. He had a mandate from the American people to pass legislation that would provide every American with affordable coverage.”

Moreover, Mr. Waxman said: “The issue is a lot more severe than it was in the 1990s. Fewer stakeholders  doctors, patients, hospitals or insurance companies  want the present system to continue. It will bankrupt the country.”

House Democratic leaders said the health care bill would be on the floor in September, after they meld versions approved by three committees. The Senate will be in session next week, but the Finance Committee chairman confirmed Thursday that his panel was not ready to take up the issue.

Action by House committees gives Mr. Obama a fragile political victory. But it fell far short of his original goal, which called for both houses of Congress to approve the legislation before the August recess.

The Energy and Commerce Committee voted, 47 to 11, to establish a procedure for federal approval of generic versions of expensive biotechnology drugs. Representative Anna G. Eshoo, Democrat of California, said this change could save the government $9 billion over 10 years.

Democrats on the Energy and Commerce Committee cleared the way for approval of their bill by adopting a package of amendments bridging differences among liberal, moderate and conservative members of the party.