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Chapter 9

Congress

American Government:

Policy & Politics, Eighth Edition

TANNAHILL

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In This Chapter We Will Cover:

• Bicameralism• Membership• Organization• Development of the modern

Congress• The legislative process• Analyzing the legislative process

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Bicameralism

• Bicameralism is the division of the legislative branch of government into two chambers. The United States’ bicameral system is composed of a Senate and a House of Representatives.

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U.S. Bicameralism

• House of Representatives– Since 1911, there have

been 435 voting members in the U.S. House.

– The size of a state’s delegation depends on the state’s population.

• Senate– Each state elects two

senators.– Originally senators were

selected by state legislatures; however, since the ratification of the 17th Amendment (1913) senators are popularly elected.

– Senators serve six-year terms.

– Terms of the membership are staggered.

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Membership• Profile of the membership

– The 109th (2005) Congress is ethnically quite diverse.• Diversity in the House

– 65 women– 42 African Americans– 24 Latinos– 3 Asian Americans– 1 Native American, 1 Asian Indian American, 2 openly gay

men, and 1 lesbian

• Senate diversity– 14 women– 2 Asian Americans– 2 Latinos– One African American

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Membership

– Members of Congress are older, richer, and better educated than the average Americans.• The average age in the House is 54, in

the Senate it is 60.• At least 50 members are worth over $2.5

million.• In 2005, almost every member of

Congress was a college graduate.

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Membership• Compensation

– Rank and file members of Congress make $158,000.– In 1989, lawmakers get an annual cost of living raise unless

both the House and Senate vote to block it.

• Personal Styles– Traditionally the job of a member of Congress was viewed

as a career.– Today many members see serving in Congress as a

stepping stone to higher office.

• Membership Turnover– While incumbents are rarely defeated, turnover is relatively

high.

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Organization

• Senate Leadership– Senate president pro tempore

– Senate Majority Leader

• House Leadership– Speaker of the House

– House Majority Leader

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Organization

• Committee and Subcommittee Organization– Standing committees are permanent

committees with authority to draft legislation in a particular area.

– Select committees are established for a limited time only.

– Joint committees include members from both houses of Congress.

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The Development of the Modern Congress

• Pre-Civil War– Congress was a part-time legislative body, normally

meeting for less than six months per year.

• Civil War to 1910s– Congress became a professional body.– Leadership and committees became more

important.

• 1910s to 1970s– Congress grew very decentralized.– Committees and chairs became autonomous power

centers.

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The Development of the Modern Congress

• Mid-1970s– Critics charged Congress had become

undemocratic by relying heavily on seniority and party affiliation.

– Critics also objected to the use of unrecorded votes and deal making outside of the public eye.

– Reforms in the 70s made Congress more open, representative, and democratic, but also less efficient.

• Since 1970s– Steps have been taken to modify the impact of the

70s reforms.

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The Legislative Process

• Origin and Introduction– In 2003, members of Congress

introduced 7,014 bills and resolutions.• A bill is a proposed law.• A resolution is a legislative statement of

opinion on a certain matter.

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The Legislative Process

• Committee and Subcommittee Action– Once a bill or resolution is introduced,

it is assigned a number and referred to committee.

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The Legislative Process

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The Legislative Process (continued)

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The Legislative Process

• Floor Action– The process for moving measures from

committee to the floor varies, depending on the type of measure.

• Appropriation bills are legislative authorizations to spend money. Sometimes the leadership brings these bills to the floor after little or no committee consideration

• Most measures in the House go to the Rules Committee after having cleared standing committees. The Rules Committee determines the rules under which a bill can be debated, amended, etc.

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Floor Action

• House– The Speaker has

tremendous power because of control over the Rules Committee.

• The Speaker personally picks a majority of the members on the Rules Committee.

• Once a measure reaches the House floor, debate is typically very tightly structured.

• Senate– Measures can reach the

floor by a unanimous consent agreement.

– Nongermane amendments are allowed, when they stop a bill they are called killer amendments.

– Filibusters can delay a vote indefinitely, unless cloture is invoked.

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Floor Action• Conference Committee Action

– Conference committees negotiate differences between House and Senate versions of legislation.

– Though rarely used, conference committees are typical for major legislation.

• Presidential Action– A veto is refusal to approve.– Pocket vetoes allow a measure to die without

signature after Congress has adjourned.

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Analyzing the Legislative Process

• Political Ideology– The personal views of members of Congress have

a major impact on legislative policymaking.

• Political Party– Has its greatest influence on close votes,

procedural votes, and matters that party leaders identify as key.

• Constituency– Most members of Congress believe that they have

a responsibility to “vote their district.”

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Analyzing the Legislative Process

• Leadership– Having few formal powers, congressional leaders

must resort to bargaining and persuasion.

• Interest Groups– Groups hope to gain access to gather information

so they can determine the impact of propose policy.

• The White House– The president is a key player in congressional

policymaking. Presidents use their influence to round up votes on the floor.

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Concluding Review Questions

• How have the differences in constitutional structures and responsibilities of the House and Senate affected the development of the two chambers?

• Does the membership of Congress reflect the diversity of American society?

• How are party leaders chosen and what role do they play in the legislative process?

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Concluding Review Questions

• How are committees organized?• What are the steps in the legislative

process?• How much influence do interest groups

have in the legislative process?• What role does Congress play in the

policymaking process?