Except as provided in paragraph (2) of this subsection, this section applies to: each unit of the State government; and each unit that: is created by general law; and operates in 2 or more counties. This section does not apply to a bicounty commission that county governing bodies appoint if those bodies also review the budget of the commission. A unit may not adopt a rule or regulation or take any other administrative action that would result in expenditures in excess of the limitations in the State budget unless: the General Assembly expressly approves the administrative action; if the General Assembly is not in session, the President of the Senate and the Speaker of the House of Delegates: consult with the Joint Audit and Evaluation Committee; and after receiving the written advice of the Joint Audit and Evaluation Committee, jointly give written approval for the administrative action; or the Governor declares, by proclamation, that the administrative action is necessary and a matter of emergency.