1. Chapter 13
Congress

2. Learning Objectives
In what respects is Congress “the first branch” of American national government?
Why do most Americans and many experts now view Congress as “the broken branch”?
What are the main differences between a congress and a parliament?
How has the legislative productivity of the U.S. Congress varied over time?
Are the American people as deeply divided in partisan and ideological terms as their representatives in Congress now appear to be?
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3. Learning Objectives
How closely do members of Congress mirror the American people in terms of gender, race, and other demographic characteristics?
Does Congress normally do what most citizens want it to do?
Should Congress run under strong leadership?
Should Congress act more quickly?
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4. Introduction WHO GOVERNS? TO WHAT ENDS?
Are members of Congress representative of the American people?
Does Congress normally do what most citizens want it to do?
TO WHAT ENDS?
Should Congress run under strong leadership?
Should Congress act more quickly?
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5. Introduction Framers’ view of Congress “First branch” of government
Holds most national government powers
Essential to federalism
Maintains separation of powers
Linchpin of checks and balances
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6. Introduction Contemporary Americans’ view of Congress
“Broken branch” of government
Unable to address problems effectively
Too responsive to special interests
Nonstop campaign fundraising and/or corruption
Unlikely to fix itself
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Consistent with this broken branch view, in recent decades, public approval of Congress has
rarely ranged much above a third.

7. The Powers of Congress Constitution: Article 1, section 8
To lay and collect taxes, duties, imposts, and excises
To borrow money
To regulate commerce with foreign nations/among states
To establish rules for naturalization and bankruptcy
To coin money, set its value, and punish counterfeiting
To fix the standard of weights and measures
To establish a post office and post roads
To issue patents and copyrights to inventors/authors
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8. The Powers of Congress Constitution: Article 1, section 8
To create courts inferior to the Supreme Court
To define/punish piracies, felonies on high seas, and crimes against law of nations
To declare war
To raise and support an army and navy; make rules for their governance
To provide for a militia
To exercise exclusive legislative powers over seat of government, federal facilities
To “make all laws which shall be necessary and proper for carrying into execution the fore-going powers, and all other powers vested by this Constitution in the government of the United States.”
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9. Congress versus Parliament
Independent representatives of districts or states
Primary system; voters choose among individual candidates
Principal work is representation and action
Parliament
Loyal to national party leadership
Voters choose among national parties
Principal work is debate
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A real parliament, such as that in Britain, is an assembly of party representatives who choose a
government and discuss major national issues. A congress, such as that in the United States, is a meeting place of the representatives of local constituencies—districts and states.

10. U.S. Congress Members of Congress in 2013:
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Jeff Malet Photography/Newscom
Members of Congress in 2013:
Base salary $174,000, plus generous benefits
Large office and staff
Additional allowances for travel, communication etc.
Franking privileges

11. The Evolution of Congress
Bicameral (two chamber) legislature
House of Representatives
Senate
Centralization vs. decentralization
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12. The Evolution of Congress
House History: Six Phases
Phase One: The Powerful House
Phase Two: The Divided House
Phase Three: The Speaker Rules
Phase Four: The House Revolts
Phase Five: The Members Rule
Phase Six: The Leadership Returns
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Being big makes it hard for the House of Representatives to be powerful unless some small group runs it.

13. The Evolution of Congress
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Source: The New York Public Library/Art Resource, NY
A cartoon from Puck in 1890 expressed popular resentment over the “Millionaires Club,” as the Senate had become known.

14. Who Is in Congress? Gender and Race Becoming less male and less white
2013: fewer lawyers and former members of armed forces
Senate changed more slowly
First woman Speaker–Nancy Pelosi (2007)
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In 2013, about 1 in 6 members of Congress was serving their first term.

15. Blacks, Hispanics, and Women in Congress, 1971–2013
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Table 13.1
Source: Congressional Quarterly , various years.

16. Who Is in Congress? Incumbency Most incumbents win Marginal districts
Safe districts
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17. Re-election Rates for House and Senate Incumbents, 1964–2012
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Figure 13.1
Sources: For 1964–2008 data, The Center for Responsive Politics; 2010 data compiled by author; and 2012 data drawn from The Center for Responsive Politics, OpenSecrets.org, accessed by Jesse Crosson, May 28, 2013.

18. Who Is in Congress? Party Redistricting has little overall effect
Impact of major electoral convulsions
Conservative coalition emerges in 1960s and 1970s (then declines)
Growing ideological partisanship
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19. Representation and Polarization
Representational View–members vote to please their constituents
Organizational View–members vote to please fellow members of Congress
Attitudinal View–members vote on the basis of their own beliefs
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20. The Organization of Congress: Parties and Interests
Party Organizations
The Senate
President pro tempore (honorific)
Majority leader (power)
Minority leader
Whips
Policy Committee
Standing committees
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21. The Organization of Congress: Parties and Interests
Party Organizations
The House of Representatives
Speaker of the House
Majority leader (floor leader)
Minority leader
Whips
Committees
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SAUL LOEB/AFP/Getty Images
U.S. House of Representatives Speaker John Boehner won re-election in his party in 2013 to lead the chamber for a second term.

22. The Organization of Congress: Parties and Interests
Party Voting
Party Votes
in the House,
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Figure 13.2
Note: A party vote occurs when the specified percentage (or more) of one party votes against the
specified percentage (or more) of the other party.
Sources: Updated through 2008 by Zach Courser; NES data as reported in 2001–2002; Harold W. Stanley
and Richard G. Niemi, Vital Statistics on American Politics (CQ Press, 2001), 211.

23. The Organization of Congress: Parties and Interests
Caucuses
Advocates a political ideology or advances a regional, ethnic or economic interest
Examples:
Democratic Study Group
Tuesday Lunch Bunch
Congressional Black Caucus
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24. The Organization of Congress: Committees
Standing Committees
Select Committees
Joint Committees
Conference Committees
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Usually the ratio of Democrats to Republicans on a committee roughly corresponds to their ratio in
the House or Senate.

25. The Organization of Congress: Staffs and Specialized Offices
Tasks of Staff Members: constituent problem-solving, legislative functions
Staff Agencies
Congressional Research Service
Government Accountability Office
Congressional Budget Office
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26. How a Bill Becomes Law Introducing a Bill Study by Committees
Floor Debate – The House
Floor Debate – The Senate
Methods of Voting
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In the House, a voice vote consists of the members shouting “aye” or “no”; a division (or standing) vote
involves the members standing and being counted. Only during a roll-call vote are names recorded (done electronically since 1973.)

27. How a Bill Becomes Law
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Figure 13.3

28. How a Bill Becomes Law Legislative Productivity How to measure?
How to evaluate changes in legislation?
Divided government
Earmarks
How has post-9/11 Congress legislated on homeland security issues?
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29. How a Bill Becomes Law Reforming Congress Term limits?
Pork-barrel legislation
Franking privilege
Congressional Accountability Act (1995)
Price of citizen-oriented Congress is a pork-oriented Congress
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30. Congress and President Propose Alternative Deficit Reduction Plans
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31. Congress and President Propose Alternative Deficit Reduction Plans
Taking a closer look:
Should Congress or the president have greater control over the federal budget?
Does the budget conflict support the “broken branch” view of Congress?
Which view (representational, organizational, attitudinal) is most reflective of the current Congress?
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