An amendment to the Jeffords amendment to provide that when unemployment is reduced to a level of 6.5 percent nationally, the bill will apply only to unemployment in "areas of substantial unemployment." "Area of substantial unemployment" is defined as "any area of sufficient size and scope to sustain a program under this Act and which has an average rate of unemployment of at least 6.5 percent for the most recent 12 months preceding the determination for which satisfactory data are available".