presidency. Daniels, however, denied the charges, saying he would have enacted the same agenda years earlier had the then-Democratic majority permitted him to do so. Budget cuts The state forecast continued revenue declines in 2010 that would result in a $1.7 billion budget shortfall if the state budget grew at its normal rate. Daniels submitted a two-year $27.5 billion spending plan to the General Assembly which would result in a $500 million surplus that would be used to rebuild the state reserve funds to $1 billion. He proposed a wide range of budget austerity measures, including employee furloughing, spending reductions, freezing state hiring, freezing state employee wages, and a host of administrative changes for state agencies. The state had already been gradually reducing its workforce by similar freezes, and by 2011, Indiana had the fewest state employees per capita of any state—a figure Daniels touted to say Indiana had the nation's smallest government. Daniels backed the creation of additional toll roads, expanding on his 2006 overhaul of the Indiana Toll Road system (known as "Major Moves"), in an attempt to secure an additional source of revenue for the state. But opposition from within his own party led to the bill being withdrawn by its Republican sponsor, Sen. Tom Wyss, Daniels's only significant legislative defeat during the 2011 session. The legislative walkouts delayed progress on the budget passage for nearly two months, but the House of Representatives was able to begin working on it in committee in April. The body made several alterations to the bill, including a reapportionment of education funding based more heavily on the number of students at a school, and removing some public school funding to finance the new voucher system and charter schools. Energy Daniels announced in October 2006 that a substitute natural gas company intended to build a facility in southern Indiana that would produce pipeline quality substitute natural gas (SNG). The lead investor was Leucadia National, which proposed a $2.6 billion plant in Rockport, Indiana. Under the terms of the deal endorsed by Daniels, the state would buy almost all the Rockport gas and resell it on the open market throughout the country. If the plant made money from the sale, excess profits would be split between Leucadia National's Indiana subsidiary, Indiana Gassification, and the state. If it lost money from the sale, then 100% of the losses would be passed onto Indiana consumers.