Scribd Logo
Upload

Welcome to Scribd!

  • 18 - C Lowi Ch. 5 - Organized PDF

    Uploaded by

    JosefinaGomez
    35 views16 pages

    Original Title

    18 - C Lowi ch. 5_organized.pdf

    Copyright

    © © All Rights Reserved

    Available Formats

    PDF or read online from Scribd

    Did you find this document useful?

    Is this content inappropriate?

    Report this Document

    Copyright:

    © All Rights Reserved
    Download as PDF or read online from Scribd
    Flag for inappropriate content
    35 views16 pages

    18 - C Lowi Ch. 5 - Organized PDF

    Uploaded by

    JosefinaGomez

    Copyright:

    © All Rights Reserved
    Download as PDF or read online from Scribd
    Flag for inappropriate content
    of 16
    Congress: The First Branch HOW DOES CONGRESS WORK? ‘The U.S. Congress isthe “first branch” of government under Article I of out Constitution and is algo among the world's most impertant representative bodies ‘Congress is the only national representative assecnly that can actualy be sald to _ovem. Many ofthe world’s representative bodies only represent thats, thie gow «emmental fictions consist manly of fizming and legtimating the national lex lership's decisions. The only rational represezatve body that actly possesses powers of governance isthe US. Congress. For example, while the US, Congress ‘ever accedes tothe president's budget proposals without making rigor change, both the Brish House of Commons andthe Japanese Ditalvay acept the budget ‘evactly a proposed by the government In this chapter, we shall ty to understand how the U.S, Congress is able to { serve simultaneously a representative assembly anda powerful agency of govern ‘ment. Congress contolsa formidable bstey of powers that it uses to shape policies snd, when necessary, defend its prerogatives against the executive Branch ‘Congress has vast authority ver the to most important powers given to ay fgoverament: the power af force (contol over the nation’s mtary forces) and the [Powe over money. Specifically, eeconding to Arce I, Section 8, Congres can “ly © Congres ste most important representative institution in American fovemment, © Constituents hold their epresentatves to acceun through elections, (© Congress also makes the av: Before abil can become la it must past through the legislative process, a complex set of procedures in Congress. (© The legislative proces is driven by numerous politica forces: politcal porte, committe, eal, caucusco, rules oflawmning, snl Ue css berorte ate fom wiehaneiaue eovoe nod Impotence ‘hore ‘Ben tes bs siathecrsbesnie Testoricorbr tenn numa Soatuee iy as and collec Taxes” deal with indebtedness and bankrupt, impose duties, borrow nation’s parse stings. [also may "pro tnderlake public works, acquire and conteel federal lands, promote scence and ‘oseful An (pertaining moety to patents and coprighs), and regulate the mila. Inthe realm of foreign plicy, Congress has the power to declare var. deal wit piracy, egulate foreign cotainetce, and raise and regulate the armed forces and mil: itary instalation, These powers over war and the military are supreme—even the president, = commander In chief of the miliary, ust obey the laws and orders of Congress if Congres chooses to ase its constitutional authori (inthe past cen tury, Congress has uewslly surrendered this authority othe president) Further, the Senate has the power to approve treaties (bya twothitds vos) andto approve the ap- pointment of ambassadors, Capping these powers, Congres is charged to make Tams “which shall be necessary and proper for carrying into Execution the foregoing Powers, and al other Powere vested by this Constittion in the Government of the United States, o in any Department or Officer thereat” Its exrsordnacily dificult for a large, representative assembly to formulate, enact and implement the lave, The internal compledtes of conducting businest within Congress—the legislative process—are dzunting, inadtin, many individ als and ination have the capacity to ing luence the legislative proces. To exercise its power wo trae the law, Congress must fst bring about something lose to an oF sanizational mira, kn this chapter, after a brie consideration of presentation, we twill examine the organization of Congress andthe legislative process. Throughout, ‘ve pint ou the connections between these wo aspects—dhe ways in which repre [entation affects congressional operations (especialy through “the electoral connec tin’) and the ways in which congresionatinetintins enhance or diminish representation (especialy Congres’ dvison- and specialization oflabor committee system REPRESENTATION ‘Congress isthe mest important representative instation in American government ach member's prt responsiblity i¢ to the dist, to his ox her constituency, not tothe congressional leadership, a par, or even Congress tel. Yet the task of representation isnot a simple one. Views about what corstiutes far and effective representation diffe, and conetnuents can make very different kinds of deriands on their representatives. Members of Congeess must consider these diverse views and ‘demands os they represent thelr strc (Figure 5.) ‘Some leiatos see themselies 2 perfec agems of others: They have been lected todo the bidding of those who gent thom to the legislature ad they act as legates, Others see themnselves a having bon selected by thir fellow citizens to do what they thinks right" and they act a tustaes. Most egslators are a mix of these two ype. ‘As we discussed in Chapter 2, gency representation tans place when co stituents have the power to ire and fre their representatives. Frequent competitive CHABTERS CONGRESS FIGURE 5.1 How Members of Congress Represent Their Disticts hens onsite an peti by whch const le ren serount and keep hem epee to consinenc ews and ptr The Hen ofa repeat sage estar fo the resonhip of leper sod lent The the rlaonhip between te member of Congress salve ony {0000 “cent in the dsc ort beeen the eatr end mons cents she tte is very dirt om tt ft yer and cent, But he Fomance ae comple ‘One expec the very let that each ep constant event wil conan be seeking te scorerthe interests ofthe conaitncy an wl be spealing fr ese ress Sn Congress and ober centers of grematent* We eect thes berate fine that members of Coupes, ke pltcaneeveyhere ae ain. For many seb e sited spy by matings hl onthe poe ee Advancing up the rans of poner in that Iegitine body. Same may be soy eis of per Tie nae pi inne cn pn end he ie cn a te ea Bae hen Wy ab. eo ane Hane Naor ea Dara oe rae en _elsborating on Feono's asic are found in Marie Biwine and Dovid W. Rhode, edn, fhore hye aad ‘Washingion Work (Aun Arbor: University of Michigan Press, 1985) Bee bieamerton Oi Son af leit Bech owes, owe seacine ©. aliea to the net lvel—to higher legislative ofice, 28 when a representative seeks a ‘Senate seat, or to an exec offic, 28 when a legislator rents home to run for the state's governorehip, oat the highse level, when a legieatr esl the pres dency? In each ofthese cass he legislator is eager to serve the intress of con suitcnts, eltbe to enhance his or er prospeats of contact renewal atthe next ‘lection orto improve the chances of moving to another level House and Senate: Differences in Representation The fermers of the Constitution provided for hicameralism—hat is, 2 legislative body consisting of two chambers. As we saw in Chapter 2, the famersintended each ofthese chamber, the House and Senet, 10 sare diffrent conttueny. Members ofthe Senate, appointed by state leyslatwes for scyear tems, were to repesent the tite members of society and to Le mote attaned to the interests of ropes han 10 ‘hese of popultion. Today! members ofthe House and Senate ae elected diet by ‘he people. The 435 members ofthe House are clected ffom discs apportioned ac cording to population: the 100 zaembers ofthe Senate are cece by state, with two sen- stort fom each, Senators continu to have much longer toms in fice and usualy represnt much larger and more diverse constimencis than do thee countorparts in {he House (se the In Brief Bax onthe eloing page “The House and Senate play diferent roles in the lgilative process, Inesserce, the Senate is the more deliberative ofthe two bodies—he forum in which any and all eas can receive thorough public citing, The House isthe more centralized and organized ofthe two bodies—better equipped to play a routine role i the gor- temmental proces. In part this difference stems fom the different rales governing fhe to bodies. These rues give House leaders more control over the legislative process and provide for Howse members to epecialie in certain lgilaive aeae. ‘The rues ofthe much-smaller Senate give its leadership relatively litle power and Aiscourage specialization. oth formal and informal factors contribute to differences between the to hurnbers of Congress. Difference in tie length of terme and requirements for oiding office specified by the Consttation in turn generste differences in how members of ech body develop their conssmuencies and exercise their powers of of. fice. The result is that members ofthe Honse mos effectively and frequently serve 16 the agents of wellorganized local interests with specific legsative agendas — used car dealers seeking rei fom regulation, labor unions seeking more favorable legislation, or farmers looking for higher subsidies. The small size and relative ho: megeneity of thee constituencies and the Feequency with which they must seek ro lection make House members more attuned to the legislative needs of local errs om acre ener J 8 Miting “Leite Caer Why 2nd How We ‘Shoal Say Them” pte Sai sme 299 16-71 Ser se Che D ast Sr Ptr, Sandy Mal and Wade Sto," When ok 12 nssons, Airs and he Deck ‘ont fa fort Hoe Arion ill Se Ro 10,22 (ay 2906 39-248, “anne pia Ha ema a be el ee ‘man gen Princ(Ann Abr Users of Man Pes, 1397) charieR S) concness ind the Stnate. Neimumagscfmenter ayes 20a US.ctnesip Aes yes least yer Length ott ayes Sree erp ste Dipend on open 2pesine pcrsoot a pow prea | enstoeney Tend tobe son teandnatond | tor nee groups Tis, tn wa eine he Const daiee~namel forsee ht the Hout of Representatives woud be "he perl bau and ati ee ‘oul sft and seprset plc opinion ine ey mes States on the oer and cere lager ed tee . are eogenocscnsuen cies. At sre heyaresomenkt beter sletan member he seen the agents fr groups and iret enanzed ons slate osatocal ane oveoves th loge: rms in of, sents hve i ay ofcononcy see Se ring binge sew ons tet ter an Sy suing esting ones. Ths wit te ames intent hen ey on sgl ese when thy date te "ce yn he Howe ae eid considniy more inne pra Sip snd eclge vsion than te Seat Deca of et dene eaten stator ae orice sek compromise Wil ed sei es sod ater groups as posible Member ote Howe, canta opal ane seat morehomogeneos discs in which hi owe pry donne THs ton ha edd to make Houte meats less nnd see comprontoe od ‘more willing than their Senate counterparts to stick | alg stk pram nd ese pus using the policy debates ofthe pat sev erades Ia ir eee 2007 the House was considerably more pric han Seren a eens ‘ots on Pesien uci poles ng ‘The Electoral System Inlight oftheir roe as agents for various constituencies inthis states and natituencles in thelr eats and ditt, and the importance of elections asa mechanism by which principals (conrStuents) ‘eward and punish their agents, representatives ate very much influenced bys toral considerations. Thee factors related tothe US, electoral psem aflet who ges lected and what he or she does once in office. The fist se of fasues concerns She cides to rum fr office and which candidates have an edge over others. The second {seus i that of the incumbency advantage. Finally, the way congressional dstct ‘ua ace drawn can greaty atlect the outcome ofan election, Let us eamine more vel Hked or too well mown. “The role of incambeney also las iplications forthe socal composition of Congress. For example, the incurbeney advantage makes it harder for women to in- Create their mumbets in Congress because most incumbents are men. Women who ‘rin for open seats (for which there are no incumbents are just as kel to win a8 raale candidates.” Supportere of term limite argue that sch limits are te only Way to getmew faces into Congress. They believe at the incumbency advantage and the ‘pga anlar a anes Sep “Cmpgn Wht Ont Cpe ston” Bas persed Fle 005-1 oan cata te Magu “How Mache Maer Stun he US. Ces Wort” Amen tal Sec Renn. 2 fe 125 29-18. Yipee Bickers a Robe St, “The eco! Djs of te Flea Pek Rael” Arman rs ef Pi See 4 96) 130-26. sige ul A Wea sin Hc, and Di re “Re 8 Womens ei at: me lng Rahn P, Speer 1996p A. ‘cnarres § concRESS Ea Endand ma, ‘ {Gack Norman | Osa harass ad Nha alin ls Vil Sena on is 201-202 Washington DC: kai Erp na 2 6. 8 tendency of many legisltors to view politics as 4 career mean that very litle ‘turnover wil ocr in Congress unless Limits are imposed on the numberof terms legislator can serve Congressional Districts "The fina ctor that fete who wine seat in Congress is ‘the way congressional district redrawn. Bery ten years, state legislatures rus raw congressional districts to reflect population changes. In 1929, Congress er ‘scted a nw fixing the total number of congressional sete at 435, As result, when states with growing populations gain dite, they dao 2 the expense of eats ‘whose population have remained stagnant or declined. In recent decades, this has ‘meant that the nation’s gronth areas in the South and West have gained congres sonal seats atthe expense of the Noceast and the Midwest (Figure 5.3). Aer the 2000 Census, for eample, Arona, Teas, Frida, and Georgia each gained sro ‘seats while New York and Pennsylvania each lost two seats. Redraving congres ioral dctictof highly politcal pancos, Disuits are shaped to create ah van tage for Uae majority party inthe state legilature hich controls the redstecing fepacsentarion amermandering Ae Seton fet rasta sha sepantepc snr Bienen pale apa comune excine process As we wl se in Chapter 10, gerrymandering can havea major effet on the outcome of congressional lotions Since the pesege ofthe 182 eendments tothe 1965 Voting Rights Act race has become major ad conttoversial—considerction in drawing voting distri ‘Thete amendments which encouraged the creation of districts in which members frac minors have deve major, have gtety increased the number of tnortytepesentaves in Congres. Afr the 191-82 rediticing, the umber of predominantiy minocky dist doubled, sing fem twenty-six to fiyew0. ‘Among the most fervent supporters ofthe new mio discs were white Re publics, who used the opportunity t crate moe dstcts dominated by white Repubcan otra! These developments aie thorny quetions about representa tion. Some analysts argue tit he system may grant maineies get sociological feprenenation, but thas made i mae dificil for them to wia substantive policy gals ‘THE ORGANIZATION OF CONGRESS ‘We shall now examine the organization of Congress 2nd the leistative process, pare ticularly the basic building Blocks of congressional organization: political paris, the committee syetem, congressional staff, the caucuses, and the parliamentary res ofthe House and Senate. Each ofthese factors playa key role in the organiza tion of Congress and inthe proces trough which Congress formulates and enacts laws, We villalso look at powers Congress has in addition to lawmmaking and explore the fare role of Const in elation to the powers ofthe executive Party Leadership and Organization in the House and the Senate ‘One significant aspect oflgilatv life i not even part of the oficial organization: politieal parties, The egelative parties primarily Democratic nd Republican in Fovlern times, bat numerous other over the course of American histoy—are «x ‘plans of orgeizatons that fester cooperation, coalitions, and compromise. They fre the vehicles of exletve action, bot for legislators sharing commen policy ob- jective inside the legislate and for those very same legislators as candidates in p= Fodic cleeton contests back howne!*In short, plitcal pares in Congress are the Fiona ln He ada Rss Rail Geyanderng and Miner nen aps {Peer ]:Prneian Uae Pes 99) "San un The Ty fie Math dames ass Rsv Dens ew Yak ‘es us 98) See Bn Epi mStar Oot. “Messreg Heol 08 Fly Inpacs fhsynriyVting uth” Aer jae ial Sen 2099 365, “poral proudel eal fe doepmie’ fp pats oe walla ame of “a anal ovenperarysenc ach Alch, hy Pr? Tae Origine Tae tof att Pe Arc (hinge Ui of Chengo Pres 195 Per ana of [Be putes in the lege process, se Gay W. Cov aed Mathew D. MeCobbing, age dha Poy Goer ate Hs reine of Cfo Fes, 192, A pro Trott quencing beets ree Whe she ay A oral a Since 059 B85, a chmoree 5 conatess 4A fundamental building blocks from which policy caine are Fahioned to pas le {elton end monitor ite implementation, thereby providing rack record on which ‘members build electoral supprt. Every two years, atthe beginning ofa new Congres, the merabers of ach party gather to cect their House leaders. This gathering is uaditionlly called the party ‘auc, on the case of Republicans the party conference. ‘The elected leader ofthe mforty party is later proposed tothe whe House and is automatically elected tothe postion of Speaker ofthe House, with voting slong straight party lines. The Houte majority caucus (or conference) then ako lect a msjrity leader. The minority paty goes through the same process and se Jects the mnoityleader. Both parties alo elect whips to lineup party members on smmportant votes and relay veting information to the leaders ‘Acne time, party leaders strictly controlled committee assignments, using ‘hem 0 enforce panty diclpline. Today representatives expect to reese the assign ments Uy want and resent Ieadership efforts to conto assignments. Far example, during the 104th Congress (1995-86) the chairman of the powerful Appropriations Commitee, Rober Livingston, ecught to remove fieshman Mark Nesmann (Wisc) ftom the committe because of his lack of party loyally, The entie Repub lean freshman diss angrily opposed this move and forced the leodership to back down, Not only dd Neurnann keep bis seat on the Appropentions Commitee, but Ihe was given a seat on the Budge! Committe, az wel to placate the freshmen” “The leadership's best opportunities to use comuitiee assignments a rewards and [punishment cone when more than one member seeks ase on &coraitee. CGenarally, representatives ote asignments that will allow them te inBvence Accisione of special importance to their district, Representatives from farm die ‘wis, for example, may request seats on the Agriculture Committe Seats on powerful commintzes such as Ways and Means, whichis responsible for tx lgila Son, and Appropriations ae especially popular ‘Within the Senate, he president pro tempore cxecaesmsinly ceversoia leader ship. Usually, the majority party designates @ member with toe greatest seniody to serve inthis capocty Real power i inthe hands ofthe majo leader and mineity Jeader, each elected by party caucus or conference. The majority and minority leaders, ‘ogethes, cantl the Senate's calendar or agends for lgisation. In edition, the sea tors fom each paryelecta whip, (Tae whip aysem i dscused inthe Pay Discipline section ofthis chapter) In recent yeas, party leaders ave sought to sugeaant their formal powers by reaching outside Congress for resources that might enhance thet influence within (Congress, One aspect of this eternal sate i the increased use of national com ‘municitons media, incding televised speeches and tale show appearances by parry leaders. Former Republican House Speaker Newt Gingrich, for example, used television extensively to generate support for bis programs among Republican Fea lin Te hen: Wht Harn he Repl Rents Clo: Webie, chard eo, Home Sle: He Mans Ta Die oso te, Bown 1978 Tentersce narra Telegonne mat ‘Speier ofthe House Cg eta coe eee pa Eninoee tie ‘eget ae ‘insulin perso SEs priors aa novtlinga ray Posse Rees ‘vine Sut cesar ae ‘han ese he penning nn tenting omits jem cit poue frepoee andl icra 90 edaradjea suena royalist. At lng a tasted, Gingieh’s support ariong the Republican rankcand- filgne him an ded measure of ifiuence oer Republican members of Congres. a sevond extemal sategy involves fundraising In recent years, congressional leaders ave frequently established thex cwn politcal action commutes. Interest troupe are usualy eager to contibute to thes “leadership PACE" to cust favor with oerfl rember of Coogee The leaders. in ur use dese ands to supper he Fonous cnnpaigns other partys candidates in order to create sense of bigation. For cramp, in the 1998 congressional lection, Moy Leader Dick Armey. who ves running umoppecd, raised more than $6 milion, which he disuibutd to less Vrelhecled Republican candidates, Likewise, in the 2008 elections, Nancy Pelosi “Conebuted extensively tthe campaigns of fellow Democrats. Tr addition tothe tasks of organizing Congress, congressional party leaders nay tap eee to set the legislative agenda. Since the New Deal, presidents have ‘Bier de lad in casting lepiatve agendas. (hls trend wil be discussed in the ‘Bot chapter) But in recent yeas, congressional leaders, especialy when fing & ‘Yhite House contcled by the opposing pay have attempted to devise their own Sgendss, The Amsijzing the Eeidence unit fr ths chapter takes a dozer look pa ties and agenda sting in Congress. ‘The Committee System “The commitice system provides Congres wit ts second organizational etructe, Fruit is more a division snd specication of lar than the hievarchy of power that determines leadership arrangements, ‘Sh fundamental characteristics define the congressional committe st: 1. The ofa res give ac standing comamitce a permanent satus, with a fed rane ers, es, a ofc, ad, above larson that srecopsiced Ipollther commits and suc eeehp as wl (ee Table 5. 2, Thejuredicion of ech standing commits is ded according tote sujet mater Of ae ligaton. Except forthe House Rules Commitee, all the important Tinmitees ate organized to receive proposal fr legislation and to procest {hem into offic bills The House Roles Cornmttee decides the order in which bills come up fara vote and determine the specific rules that govern the length redcbete and te opportunity for amendments. Rules can be weed to help or nine pastcelar proposals Standing covets jursictionewsualy paral those of he major deportes ov agence inthe excatvebranc, There are Iraportantexceptions—APPrO frntons (House and Senate) and Rules (House), for exmple—but by and Frage, the Svsion of labor is selEconsciously designed to parallel executive branch organization. 44 Bill are asigned to standing commsinces on the basis of subject mater, but the ‘Spat ofthe Huse ond the Seale presing afi have sore dsceion thea ‘recon of leo commas Mos bil “ie in commntee’—that s they ate 04 aponed out fearsly Ordinarily this ends a bills life, There is only one way ‘Saghc Ha, The Pl Spake (PLD. dle. Joln Horns Univers, 1958. FER civoren § conics ‘ABLE 5.1 Standing Committees of Congress, 2008, fo eve poet a cpt commie rocnng Al pte in one gute prio ety oneal oe re he, howe hil baste ell omnis testi fore passage in the first chamber. eee 5. ch nding cme ang No eft mae ompot the member ‘ipa tn mma oe mec ofthe Heo Sete Doni. Mabe th pc interest neste mt acme seed onc mebenip ont tnt i Howe an he Ses co par hanexblied Cine on Commies, wh devine ties ssignments of new members and of eibiched members who wsh Senge runs, Orta cmb oo bop fe aes aoe ments as long as they like. = THE OnCANIzATION OF cOncitess Parties and Agenda Control in Congress In assessing th influence of political parties on legislative politics, politcal scents often ask how parties affect outcomes in Congress. One approach might be to look for evidence of arm twisting or promised favre by party leaders, both of which can be used to infltence members? rollll vote choices. Yet, increasingly, scholars have responded to this question by looking for tvidenee of agenda manipulation by the majoriy party. Ifthe majority party can control what gets voted on through ts control of committees, including the Rules Committe, and the party leaders! scheduling pouet—then it can affect outcomes evan when the party leaders cannot fecively twist arms or promise favors. Thus, a question that has isn center stage in congres- sional esoate i, Who conto the agonida In Congress? eee ‘Why pends conzl so mpatat in Congress? Whichever pry con restr umber fst in ‘ter the Hous orth Senate decides which nus wilco othe or fer considerate Tote this pen consi th two not eat stars when maj onl of Cogs changud—in 184, thon Republicans ssn contol ofboth ramber, edn 2006, when Democrats won cet bath th House nd th Sent, nd tal he prs at come wh rary cont ach pry wes Sct poh tem an pari gna ew se er the tbl above theese cr eleencs tenon Repblcne ad amor intre ofthe egav pcs they cose parse. “One speci way 19 think bout agends corral la Congres isn ern ofthe winners abd lorr on parte lcs ofl bas mol us ow mach nance joy pay acl: The mas rominet expe fh approach hasbeen ak ttpartean ellis A pry or eup of members) role” when wis upon the Toe sn of te that paz te fing spc onal passage volsin he US. oes, plc cies Cary Casa Mathew Mins hare fone Dat ethe ‘arose leh the mj py ear nave ale conta oda i ab om te tab sbou ho incr par carly meee tobe on thelaig de eal peng oes. Thi sugges tht th nary pry contol the aged and reve lin tat hey oppose ard are a oles oe om ening ee EET seni Peo ‘indeaaton the Teatsiene onmitsin Gongs 6, bing omic hse on sry, Sein etre pants en par ise sory yet were wre Hae Sent nga coh comme che by eo MLAS S a mot ry Abou power of tine a RARE ty cpr linc etingy cing com tsetse sping cmtes Bee Congress at = Thee mune ef ste and hae ren enh pcseiae lget 2 ge poee che comme sharon Sse ‘The Staff System: Staffers and Agencies | ‘congressional natn secod in inp oto the coi te i taf jem, Bir meme of Congest cops lage manber ef ta members Shes ede hding cng ea wake enh enn oe Sng wile det nd onseting he ace of admins genes Tmt lls pine yn omg sh rineing earns ding naive agen, nd nepstating [Epa gies cal ih ow sng sl er Shrug dec pra cone Resets sd ens eee employ neal tlre tous sts nti Wann and homes adi the personal fle of nhl nots and epresetatres, Cos pesos empl og te ond commie safer, Teenie the error sel who ay epudies of nove in Congest, tached ey ase Trl Ste omit, and whose espe ening a dining the CSrumitocs wt nclding esearch sel renin beings, and fing tego Ne only does Congress employ personal and committee staffe, burt it has also esabhed aes sa opis desig provide he leila bach wh ‘Sure and exper nependen the ize rand These agence eno Compr opty ove adminis agencies ao eaunte pretend prosns and popes They ae he Congresiona eset Servic, hich Pet {Gene retench oie vo th tokow he cs apd competing arguments seat to polly propane of oer leat: busines be Gece Acounting ‘fice tag ch Congres can vera the Sania nd administrative a fin ef ary prcrmen gency or progam and the Conpesenl Budget Fic, stich mae the ecoommphcatons oad Hl cos proposed feral pe [Pam eich ashes ce form ropes Informal Organization: The Caucuses In tone fic eganizatino Corn theo st an wat ng ‘El oor cae fol Tc ie ne pi icon Casas rug cman epee ho hace ops tres rail haces The ine soa sara sch ae Bb ‘ote Sly Gp nd once Democrat ature else amber of cues comport eps eprssing per nen ly Tre sucht Be an Cons, Stel Gres Mesh Ca cuartenS cononess ‘cs, and the Concerned Senitors for the Ass, Legislators who share tommon back ‘roids or social characteristics have orgnizedciaces such as the Congestion ‘Black aves, the Congressional Caucus for Women's sues, ard the Hispanic Cac All these caucuses seek o advance the interests ofthe oot they represent by peo ‘moting legislation, encouraging Congress to hold hearings, and pressing admminis- trative agencies for favorable treatin. RULES OF LAWMAKING: HOW A BILL BECOMES A LAW ‘The institutional structure of Congres is one ke factor that helps to shape the leg Islatve process. A second and equally important fctoe i the rales of congressional Drocedures, Thete rules govern everything fom the fatdction of abil thrcugh its submission to dhe president for signing, Net only do these regulations influence ‘the fate ofeach and every bil, they aso help ta determine the distribution of power sn Congress Committee Deliberation ven if member of Congress, the Waite Howse, ora federal agency has spent ‘months developing and drafting 3 piece of lgiltion, it doesnot become a bill unt itis submitted offically bya senator or representative to the clerk ofthe House or Senate and refered to the appropriate committee fo deliberation. No floor ation on any bill can take place unt the committe with uriedction over it has taken all the time’ needs to deliberate, During the courte ofits deliberations, the commie yp. ‘cally refers the bill to one of ts subcommuttes, which may hold hearings stent ‘exper testimony, and amend the proposed legislation before refering it tothe Fall ‘commie for its conseeration. Tae ill committee ray acept the recommendation ofthe subommitee or hod its wa hearings and prepare its own amenedenents, Ot ‘even more frequent, the comitiee and subcommitiee may do ie or nothing with bil hat hasbeen submited to them. Many bil re simpy alowed to de in com ‘mie wit ile or no serious consideration ever given to thesn. Ina pica congres- sonal session, 85 to 90 percent ofthe roughly eight thousand bills inteduce ci In ‘ommitiee—an indication ofthe power ofthe cangresional committe system, ‘Once a bills assigned committee or commitees in the House have repoee it the bill must pass one addtional hurdle: the Rules Cornmittc. This poweefl ams ‘mittee determines the rules that will gem action on the billonthe House floor In particulate Rules Comite alos the ime for bate and decides to what extent amendments to the bill can be proposed from the oor. A bills supporters generally prefec what is called a closed ralo, which severely iit oor debate and smmend. ‘ents. Opponents ofa bill usually prefer an opem rule, which perinits potentially damaging floor debate and makes easier to add stmendmants that may erppe the Dil or weaken its chances for passage Debate Panty contol ofthe agenda is reinforced by the ule giving the speaker ofthe House !nd the majority leader ofthe Senate the power of recognition daring debate on bill Usually the chair nows the purpose for which a member intends to speak well ULES OF Lawman Ite use es techie rate (reenact epenrale rosin tee creo cures How 2 Bill Becomes ai Law ‘io oho bilan bonded Poms stuhch Habit de ‘Nhe presen tr sorte the bilinear ‘iiaorerSconoress In advance of the ocasion, Spontaneous efforts to gain recognition ae often foiled For example, the speaker may ack, “For what purpose dees the member rise" be: fore deciding whether to grant recognition, In the House, vitually al ofthe tine alloted by the Rules Commitee for de Dateon a given bill i cortlled by the bills sponsor and by i leading oppenest. a lost every case, these two people ae the committee chair and the ranking minor ity meraber of the committe that processed the bill—or thse they designate. These ts participants are, by rae and tradition, granted the power to allocate most ofthe debate time in small ermounts to members who ane seeking to speak fr or against the measure, nthe Senate thr than the power of recognition the leadership has rach Jess control over the foes debate. Indeed, the Senate is unique among the worlds legislative bodies for its commitment to unlimited debate. Once given the Moos, 3 senator may speak as long as he or she wishes. On 2 numberof memorable acra- Hons, senators hae sed thie ight to prevent action om lgilaion that they op poced. Through this tactic, called the buster, small minovitcs or even one individual n the Senate can force the maj to give into this demands. Daring ‘the 1950s and 1960s, fr ecmple. opponents of cil rights legislation often soight te block ts passage by adopting the tactic a iibuster The votes of three Sis of the Senate or sisty votes, are needed to end filibuster This procedure ie clled doture In geeral, the party leadership in the House as total contol over debate the Senate, each meraber has substantial power to block debate. Tis is one reason ‘hat the Senate tends tobe a less partisan body than the House. A House majority ‘an over opposition, while it takesa three ith vote in the Seuat thus the Se ate tends to be more accommodating of vatious views. Conference Committce: Reconciling House and Senate Versions of a Bill Getting a bil out of committe and through one ofthe houses of Congress i no juarantee that 2 bi willbe enacted into law. Frequently, bil that began with sin Jar provisions in both chetnbersenerge with ite resemblance teach other. Aler- ‘atively bill may be pasced by one chamber but undergo eubetsnal revision in the other chamber In such ease, a conference commitee composed ofthe senior members of the committees or eubcomraltees that inated the bile may be re ‘quiced to iron out differences bereen the two pieces of legslaton. Sometimes members or leaders wil let objectionable provisions pas onthe floor withthe idea that they wil get the change they want ia conference. Usually, conference comma ‘wes meet behind closed deors. Agreement requires a majority ofeach of the two

    You might also like