CONGRESS CHAFING AT SPENDING CAPS
Senior members of House say that Congress is primed to break its own rules and spend $14 billion budget surplus forecast for next year; Congress, determined to spend billions more on military, dubious of cutting domestic programs any deeper and driven to finance members' favorite projects in all 50 states, has already proved itself unable to live within strict budget limits it imposed in 1997; members say that those spending caps helped balance budget, but they are now squeezing too tight (M)