The Smithsonian Board of Regents agreed in September 1991 to draft museum legislation, and submitted their bill to Congress in February 1992. The bill was criticized by Tom Mack and others for putting the museum in a building that was too small and old to properly house the intended collection, and despite winning approval in both House and Senate committees the bill died once more. In 1994, Senator Jesse Helms refused to allow the legislation to come to the Senate floor (voicing both fiscal and philosophical concerns) despite bipartisan support.