StudyOutline Chapter11:Congress 1. Congress:the"firstbranch" a. Thisbranchhasconsiderablepower b. Manyconsiderthisbranchtobetheonemostbadlyinneedofrepair c. Thepuzzles,processesandactionsofthisbranchsayagreatdealabout America'srepresentativedemocracy 2. CongressversusParliament a. Parliamentarycandidatesareselectedbyparty i. MembersofParliamentselectprimeministerandotherleaders ii. Partymembersvotetogetheronmostissues iii. Renominationdependsonloyaltytoparty iv.

Principalworkisdebatingnationalissues v. Verylittlepower,verylittlepay b. Congressionalcandidatesruninaprimaryelection,withlittlepartycontrol i. Voteisforthemanorwoman,nottheparty ii. Resultisabodyofindependentrepresentatives iii. Membersdonotchoosethepresident iv. Principalworkisrepresentationandaction v. Greatdealofpower,highpaypartiescannotdisciplinemembers c. Congressadecentralizedinstitution i. Membersmoreconcernedwiththeirviewsandviewsoftheirconstituents ii. Memberslessconcernedwithorganizedpartiesandprogramproposals ofpresident d. Congresscanbeunpopularwithvoters 3. TheevolutionofCongress a. IntentoftheFramers i. Toopposeconcentrationofpowerinasingleinstitution ii. Tobalancelargeandsmallstates:bicameralism b. Traditionalcriticism:Congressistooslow i. Centralizationneededforquickanddecisiveaction ii. Decentralizationneededifcongressionalconstituencyinterestsaretobe dominant c. DevelopmentoftheHouse i. Alwayspowerfulbutvariedinorganizationandleadership 1. PowerfulSpeakers 2. Powerfulcommitteechairmen 3. Powerfulindividualmembers ii. Ongoingdilemmas 1. Increasesinsizehaveleadtotheneedforcentralizationandless individualinfluence 2. Desireforindividualinfluencehasledtoinstitutionalweakness

d. DevelopmentoftheSenate i. StructuraladvantagesovertheHouse 1. Smallenoughtoberunwithoutgivingauthoritytosmallgroupof leaders 2. Interestsmorecarefullybalanced 3. Notimelimitsonspeakersorcommitteecontrolofdebate 4. Senatorsnotelectedbyvotersuntilthiscentury a. Chosenbystatelegislators b. Oftenleadersoflocalpartyorganizations ii. Majorchanges 1. Demandfordirectpopularelection a. IntensepoliticalmaneuveringandtheMillionaire'sClub b. Senateoppositionandthethreatofaconstitutional convention c. 17thAmendmentapprovedin1913 2. FilibusterrestrictedbyRule22thoughtraditionofunlimited debateremains 4. WhoisinCongress? a. ThebeliefsandinterestsofmembersofCongresscanaffectpolicy b. Sexandrace i. Househasbecomelessmaleandlesswhite ii. Senatehasbeenslowertochange,butseveralblacksandHispanicshold powerfulpositions c. Incumbency i. LowturnoverratesandsafedistrictscommoninCongressbefore1980s ii. Incumbentsincreasinglyviewedasprofessionalpoliticiansandoutof touchwiththepeoplebythe1980s iii. Callfortermlimitshowever,naturalforcesweredoingwhattermlimits weredesignedtodobythemid1990s iv. Influxofnewmembersshouldnotdistortincumbents'advantage d. Party i. Democratsarebeneficiariesofincumbency ii. Gapbetweenvotesandseats:Republicanvotehigherthannumberof seatswon 1. Oneexplanation:Democraticlegislaturesredrawdistrictlinesto favorDemocraticcandidates 2. ButresearchdoesnotsupportRepublicansrunbestinhigh turnoutdistricts,Democratsinlowturnoutones 3. Anotherexplanation:incumbentadvantageincreasing 4. ButnotthereasonDemocratsfieldbettercandidateswhose positionsareclosertothoseofvoters iii. AdvantagesofincumbencyforDemocratsturnintodisadvantagesbythe 1990s

iv. RepublicanswincontrolofCongressin1994 v. RepublicansreplaceconservativeDemocratsintheSouthduringthe 1990s vi. Morepartyunity,especiallyintheHouse,sincethe1990s 5. Domembersrepresenttheirvoters? a. Representationalview i. Assumesthatmembersvotetopleasetheirconstituents ii. Constituentsmusthaveaclearopinionoftheissue 1. Verystrongcorrelationoncivilrightsandsocialwelfarebills 2. Veryweakcorrelationonforeignpolicy iii. Maybeconflictbetweenlegislatorandconstituencyoncertainmeasures: guncontrol,PanamaCanaltreaty,abortion iv. ConstituencyinfluencemoreimportantinSenatevotes v. Membersinmarginaldistrictsasindependentasthoseinsafedistricts vi. Weaknessofrepresentationalexplanation:noclearopinioninthe constituency b. Organizationalview i. AssumesmembersofCongressvotetopleasecolleagues ii. Organizationalcues 1. Party 2. Ideology iii. Problemisthatpartyandotherorganizationsdonothaveaclearposition onallissues iv. Onminorvotesmostmembersinfluencedbypartymemberson sponsoringcommittees c. Attitudinalview i. Assumesthatideologyaffectsalegislator'svote ii. Housememberstendmorethansenatorstohaveopinionssimilarto thoseofthepublic. 1. 1970s:senatorsmoreliberal 2. 1980s:senatorsmoreconservative iii. Priorto1990s,southernDemocratsoftenalignedwithRepublicansto formaconservativecoalition. iv. Conservativecoalitionnolongerasimportantsincemostsouthernersare Republicans d. IdeologyandcivilityinCongress i. MembersofCongressmoresharplydividedideologicallythantheyonce were ii. NewmembersofCongressaremoreideological iii. MembersofCongressmorepolarizedthanvoters 1. Democratsmoreliberal/Republicansmoreconservative 2. Votersclosertocenterofpoliticalspectrum iv. MembersofCongress(especiallytheHouse)donotgetalongaswellas

theyoncedid. 6. TheorganizationofCongress:partiesandcaucuses a. PartyorganizationoftheSenate i. Presidentprotemporepresidesmemberwithmostseniorityinmajority party ii. Leadersarethemajorityleaderandtheminorityleader,electedbytheir respectivepartymembers iii. Partywhipskeepleadersinformed,roundupvotes,countnoses iv. PolicyCommitteeschedulesSenatebusiness v. Committeeassignments 1. DemocraticSteeringCommittee 2. RepublicanCommitteeonCommittees 3. Emphasizeideologicalandregionalbalance 4. Otherfactors:popularity,effectivenessontelevision,favorsowed b. PartystructureintheHouse i. SpeakeroftheHouseasleaderofmajoritypartypresidesoverHouse 1. Decideswhomtorecognizetospeakonthefloor 2. Rulesofgermanenessofmotions 3. Decidestowhichcommitteebillsgo 4. Appointsmembersofspecialandselectcommittees 5. Hassomepatronagepower ii. Majorityleaderandminorityleader iii. Partywhiporganizations iv. DemocraticSteeringandPolicyCommittee,chairedbySpeaker 1. Makescommitteeassignments 2. Scheduleslegislation v. RepublicanCommitteeonCommitteesmakescommitteeassignments vi. RepublicanPolicyCommitteediscussespolicy vii. DemocraticandRepublicancongressionalcampaigncommittees c. Thestrengthofpartystructure i. Loosemeasureisabilityofleaderstodeterminepartyrulesand organization ii. Testedin103dCongress:110newmembers 1. Ranasoutsiders 2. Yetreelectedentireleadershipandcommitteechairs iii. Senatedifferentsincetransformedbychangesinnorms,notrules:now lesspartycentered,lessleaderoriented,morehospitabletonew members d. Partyunity i. Recenttrends 1. Partyunityvotinghigherbetween1953and1965andlower between1966and1982 2. Partyunityvotingincreasedsince1983andwasnorminthe

1990s 3. Partyunityvotinglowertodaythaninthe1800sandearly1900s 4. Partysplitstodaymayreflectsharpideologicaldifferences betweenparties(oratleasttheirrespectiveleaders) ii. Suchstrongdifferencesinopinionarenotsoobviousamongthepublic 1. Impeachmentvotedidnotreflectpublicopinion 2. CongressionalDemocratsandRepublicansalsomoresharply dividedonabortion iii. WhyarecongressionalDemocratsandRepublicanssoliberaland conservative? 1. Mostdistrictsaredrawntoprotectpartisaninterests a. Fewaretrulycompetitive b. Primaryelectionscountformoreandideologicalvotersare morecommoninsuchalowturnoutenvironment 2. Votersmaybetakingcuesfromtheliberalandconservativevotes ofmembersofCongress 3. Committeechairsaretypicallychosenonthebasisofseniority a. Theyarealsousuallyfromsafedistricts b. Andholdviewsshapedbylifetimededicationtothecause oftheirparty e. Caucuses:rivalstopartiesinpolicyformulation i. Nolongersupportedbypublicfunds ii. Sixtypes 7. TheorganizationofCongress:committees a. LegislativecommitteesmostimportantorganizationalfeatureofCongress i. Considerbillsorlegislativeproposals ii. Maintainoversightofexecutiveagencies iii. Conductinvestigations b. Typesofcommittees i. Selectcommitteesgroupsappointedforalimitedpurposeandlimited duration ii. Jointcommitteesthoseonwhichbothrepresentativesandsenators serve iii. Conferencecommitteeajointcommitteeappointedtoresolvedifferences intheSenateandHouseversionsofthesamepieceoflegislationbefore finalpassage iv. Standingcommitteesmostimportanttypeofcommittee 1. Majoritypartyhasmajorityofseatsonthecommittees 2. Eachmemberusuallyservesontwostandingcommittees 3. Chairsareelected,butusuallythemostseniormemberofthe committeeiselectedbythemajorityparty 4. Subcommittee"billofrights"of1970schangedseveraltraditions a. Openedmoremeetingstothepublic

b. Allowedtelevisioncoverageofmeetings c. Efforttoreducenumberofcommitteesin19951996 c. Committeestyles i. Decentralizationhasincreasedindividualmember'sinfluence 1. Lesscontrolbychairs 2. Moreamendmentsproposedandadopted ii. Ideologicalorientationsofcommitteesvary,dependingonattitudesof members iii. Certaincommitteestendtoattractparticulartypesoflegislators 1. Policyorientedmembers 2. Constituencyorientedmembers 8. TheorganizationofCongress:staffsandspecializedoffices a. Tasksofstaffmembers i. Constituencyservice:majortaskofstaff ii. Legislativefunctions:monitoringhearings,devisingproposals,drafting reports,meetingwithlobbyists iii. Staffmembersconsiderthemselvesadvocatesoftheiremployers b. Growthandinfluenceofstaff i. Rapidgrowth:alargestaffitselfrequiresalargestaff ii. Largerstaffgeneratesmorelegislativework iii. MembersofCongresscannolongerkeepupwithincreasedlegislative workandsomustrelyonstaff iv. ResultsinamoreindividualisticCongress c. Staffagenciesofferspecializedinformation i. CongressionalResearchService(CRS) ii. GeneralAccountingOffice(GAO) iii. OfficeofTechnologyAssessment(OTA) iv. CongressionalBudgetOffice(CBO) 9. Howabillbecomeslaw a. BillstravelthroughCongressatdifferentspeeds i. Billstospendmoneyortotaxorregulatebusinessmoveslowly ii. Billswithaclear,appealingideamovefast iii. Examples:"Stopdrugs,""Endscandal" b. Introducingabill i. IntroducedbyamemberofCongress:hopperinHouse,recognizedin Senate ii. MostlegislationhasbeeninitiatedinCongress iii. PresidentiallydraftedlegislationisshapedbyCongress iv. Resolutions 1. Simplepassedbyonehouseaffectingthathouse 2. Concurrentpassedbybothhousesaffectingboth 3. Jointpassedbybothhouses,signedbypresident(exceptfor constitutionalamendments)

c. Studybycommittees i. BillisreferredtoacommitteeforconsiderationbyeitherSpeakeror presidingofficer ii. RevenuebillsmustoriginateintheHouse iii. Mostbillsdieincommittee iv. Hearingsareoftenconductedbyseveralsubcommittees:multiple referrals(replacedbysequentialreferralsystemin1995) v. Markupofbillsbillsarerevisedbycommittees vi. CommitteereportsabillouttotheHouseorSenate 1. Ifbillisnotreportedout,theHousecanusethedischargepetition 2. Ifbillisnotreportedout,theSenatecanpassadischargemotion vii. HouseRulesCommitteesetstherulesforconsideration 1. Closedrule:setstimelimitondebateandrestrictsamendments 2. Openrule:permitsamendmentsfromthefloor 3. Restrictiverule:permitsonlysomeamendments 4. Useofclosedandrestrictiverulesgrowing 5. RulescanbebypassedbytheHouse 6. NodirectequivalentinSenate d. Floordebate,House i. CommitteeoftheWholeproceduraldeviceforexpeditingHouse considerationofbillsbutcannotpassbills ii. Committeesponsorofbillorganizesthediscussion e. Floordebate,Senate i. Norulelimitingdebateorgermaneness ii. Entirecommitteehearingprocesscanbebypassedbyasenator iii. CloturesetstimelimitondebatethreefifthsofSenatemustvotefora cloturepetition iv. Bothfilibustersandcloturevotesbecomingmorecommon 1. Easiernowtostagefilibuster 2. Rollcallsarereplacinglongspeeches 3. Butcanbecurtailedby"doubletracking"disputedbillisshelved temporarilymakingfilibusterlesscostly f. Methodsofvoting i. Toinvestigatevotingbehavioronemustknowhowalegislatorvotedon amendmentsaswellasonthebillitself. ii. ProceduresforvotingintheHouse 1. Voicevote 2. Divisionvote 3. Tellervote 4. Rollcallvote iii. Senatevotingisthesameexceptnotellervote iv. DifferencesinSenateandHouseversionsofabill 1. Ifminor,lasthousetoactmerelysendsbilltotheotherhouse,

whichacceptsthechanges 2. Ifmajor,aconferencecommitteeisappointed a. Decisionsaremadebyamajorityofeachdelegation Senateversionfavored b. Conferencereportsbacktoeachhouseforacceptanceor rejection v. Bill,infinalform,goestothepresident 1. Presidentmaysignit 2. Ifpresidentvetoesit,itreturnstothehouseoforigin a. Eitherhousemayoverridethepresidentbyavoteof twothirdsofthosepresent b. Ifbothoverride,thebillbecomeslawwithoutthepresident's signature 10. Reducingpowerandperks a. Manyproposalsmadeto"reform"and"improve"Congress b. Commonperceptionitisoverstaffedandselfindulgent i. Quicktoregulateothers,butnotitself ii. Quicktopassporkbarrellegislationbutslowtoaddresscontroversial questionsofnationalpolicy iii. Useoffrankingprivilegetosubsidizepersonalcampaigns 1. Proposalstoabolishit 2. Proposalsforrestrictionsontimingofmailingsandataxpayer "notice" c. CongressionalAccountabilityActof1995 i. ForyearsCongressroutinelyexempteditselffrommanyofthelawsit passed ii. Concernforenforcement(byExecutivebranch)andseparationofpowers iii. 1995Act 1. ObligedCongresstoobeyelevenmajorlaws 2. CreatedtheOfficeofCompliance 3. Establishedanemployeegrievanceprocedure d. Trimmingthepork i. Maincauseofdeficitisentitlementprograms,notpork ii. Somespendingindistrictsrepresentsneededprojects iii. Memberssupposedtoadvocateinterestsofdistrict iv. PriceofcitizenorientedCongressispork 11. EthicsandCongress a. Separationofpowersandcorruption i. Fragmentationofpowerincreasesnumberofofficialswithopportunityto sellinfluence.Example:senatorialcourtesyoffersopportunityforoffice seekertoinfluenceasenator ii. Formsofinfluence 1. Money

2. Exchangeoffavors b. Problemofdefiningunethicalconduct i. Violationofcriminallawisobviouslyunethical 1. Since1941,overonehundredchargesofmisconduct 2. Mostledtoconvictions,resignations,orretirements 3. Ethicscodesandrelatedreformsenactedin1978,1989,and1995 haveplacedmembersofCongressundertightrules ii. Otherissuesaremoredifficult. 1. Asubstantialoutsideincomefromspeakingandwritingdoesnot necessarilyleadtovotecorruption. 2. Personalfriendshipsandalliancescanhaveanundueinfluenceon votes. 3. BargainingamongmembersofCongressmayinvolveexchangeof favorsandvotes. 12. Summary:TheoldandthenewCongress a. Househasevolvedthroughthreestages i. Mid1940stoearly1960s 1. Powerfulcommitteechairs,mostlyfromtheSouth 2. Longapprenticeshipsfornewmembers 3. Smallcongressionalstaffs ii. Early1970stoearly1980s 1. Spurredbycivilrightseffortsofyounger,mostlynorthernmembers 2. Growthinsizeofstaffs 3. Committeesbecamemoredemocratic 4. Moreindependenceformembers 5. Focusonreelection 6. Moreamendmentsandfilibusters iii. Early1980stopresent 1. Strengtheningandcentralizingpartyleadership 2. BecameapparentunderJimWright 3. ReturntomoreaccommodatingstyleunderTomFoley iv. Senatemeanwhilehasremaineddecentralizedthroughoutthisperiod b. Reassertionofcongressionalpowerin1970s i. ReactiontoVietnamandWatergate ii. WarPowersActof1973 iii. CongressionalBudgetandImpoundmentActof1974 iv. Increasedrequirementforlegislativeveto c. Congressionalpowerneverasweakascriticshavealleged