INTRODUCTION

The Joint Committee on the Organization of Congress developed and conducted an extensive information-gathering and policy analysis process. Not only did the Joint Committee hold 6 months of hearings (from January to July 1, 1993); it organized four symposiums on topics (the committee system, staffing, the budget process, and legislative-executive relations) of significant interest to panel members. In addition, the Joint Committee, among other fact-finding activities, organized the most extensive set of surveys of Members and congressional staff ever undertaken by a bicameral reorganization committee.

This volume presents much of the policy analysis and historical background information that Members and staff of the Joint Committee considered in developing their final recommendations. The analyses and background materials were developed by scholars and analysts at the legislative support agencies, especially the Congressional Research Service and the Congressional Budget Office; by the initiative of Joint Committee staff, who also responded to specific requests from the members of the Joint Committee; by outside think tanks and organizations, such as the Carnegie Commission on Science, Technology, and Government; and by the thoughtful commentary and expert advice of scores of individuals knowledgeable about the workings of the Congress.

The various reports and background materials refer frequently to previous legislative reorganization efforts, and it may be helpful to the reader to review the most significant. Needless to say, the work of these prior reorganization entities was a treasure trove of ideas and insight to the Members and staff of the 1993 Joint Committee.

Legislative Reorganization Act of 1946. The 1946 LRA, the first comprehensive revision of Congress's organization and operation, was the product of extensive hearings conducted by the 1945 Joint Committee on the Organization of Congress. This panel was chaired by Senator Robert LaFollette of Wisconsin with Representative A.S. ``Mike'' Monroney of Oklahoma as vice chairman. A primary objective of the 1946 Act was to modernize Congress to meet contemporary challenges, such as workload increases and the expansion of presidential authority. The Act's major features included a reduction in the number of House and Senate standing committees, the provision of permanent professional and clerical aides for House and Senate standing committees, a requirement that committees exercise ``continuous watchfulness'' of the executive branch, the preparation of a legislative budget, and the registration of lobbyists.

Legislative Reorganization Act of 1970. In 1965, Congress established the Joint Committee on the Organization of the Congress, co-chaired by Senator A.S. ``Mike'' Monroney of Oklahoma (the veteran of the 1945 panel) and Representative Ray J. Madden of Indiana, to conduct another major introspective review of legislative organization and operations. Created during a climate of concern about Congress's effectiveness, the work of this second bipartisan, bicameral panel eventually culminated in passage of the Legislative Reorganization Act of 1970. Three broad themes characterized the 1970 Act: open Congress to further public visibility, strengthen its decisionmaking capacities, and augment minority rights. For example, the 1970 Act provided for recorded teller votes in the House's Committee of the Whole; allowed minority party committee members to call their own witnesses during a day of hearings; established the Senate Committee on Veterans' Affairs; and enhanced the research capabilities of two legislative support agencies: the Congressional Research Service and the General Accounting Office.

House Select Committee on Committees, 1973-1974. In 1973, the House created a Select Committee on Committees (headed by Representative Richard Bolling of Missouri) to review comprehensively the House's committee structure. The committee realignment plan devised by the Bolling Committee sought to balance committee workloads, limit Member assignments, and consolidate related subject jurisdictions into a single committee. In addition, the committee reorganization plan strengthened the oversight function, granted the multiple referral authority to the Speaker, and augmented committee staffs. In the end, the House rejected the major consolidation of committee jurisdictions, but it adopted discrete jurisdictional changes, proposals that augmented the Speaker's authority, committee staff increases, oversight improvements, and a bipartisan recommendation for the early organization of the House.

Commission on the Operation of the Senate, 1975-1976. In 1975, the Senate adopted a resolution sponsored by Senator John Culver of Iowa (a member of the Bolling Committee when he was in the House) to establish a blue-ribbon, private citizens' panel to conduct a comprehensive review of Senate administration, management, information sources, public communications, use of Senators' time, oversight and foresight, space availability and utilization, and ancillary topics. Chaired by former Senator Harold Hughes of Iowa, the Commission submitted its final report on December 3l, 1976. Based on interviews, hearings, and staff studies, the Commission's final report identified ``elements that can help to improve the effectiveness of the Senate.'' Since the Commission issued its report, the Senate has acted to implement some of the recommendations. For instance, the Commission proposed that the Senate organize itself before the beginning of each Congress. Both Senate parties now conduct early organizing sessions.

House Commission of Administrative Review, 1976-1977. In the midst of ethical controversies and concerns about the House's internal administration, Representatives voted to create a mixed Member--General Public Commission on Administrative Review (headed by Representative David Obey of Wisconsin) to study and recommend ways to improve the House's administrative services, to enhance use of the time available to Members, and to insure integrity in the conduct of the House's legislative business. The Commission's financial ethics package was substantially agreed to by the House. Other Commission recommendations, such as the centralization of diverse administrative matters into a new Office of House Administrator and the formation of another Select Committee on Committees, were turned down by the House. Other Commission proposals to streamline House scheduling, such as an annual schedule of district work periods, were implemented by the central leadership.

Temporary Select Committee To Study the Senate Committee System, 1976-1977. In March 1976, the Senate created a Select Committee, chaired by Senator Adlai Stevenson of Illinois, to conduct a thorough review of the Senate's committee structure and to make recommendations for improvement. After the Select Committee's reorganization plan was reviewed and amended by the Senate Committee on Rules and Administration, the Senate in 1977 adopted the most significant restructuring of its committee system since passage of the 1946 LRA. For example, there was a reduction in the number of standing committees (Aeronautical and Space Sciences, District of Columbia, and Post Office were merged with other panels) and broad substantive jurisdictions were consolidated to promote comprehensive policymaking.

House Select Committee on Committees, 1979-1980. Jurisdictional fragmentation, especially in the energy arena, and continued frustration with the committee system prompted another House effort at committee reorganization. In 1979, a second Select Committee on Committees (headed by Representative Jerry Patterson of California) was established to recommend changes in the committee system. The Select Committee adopted an incremental approach to change and proposed that the House create a new Energy Committee. In addition, the Select Committee suggested other changes, such as limits on subcommittee assignments and improvements in committee scheduling to reduce meeting conflicts. In the end, the House did not adopt any of the Select Committee's recommendations.

Study Group on Senate Practices and Procedures, 1982-1983. In the wake of continuing controversy over inefficiencies in Senate operations, a two-person Study Group was established in 1982 (S. Res. 392) to propose improvements. Former Senators Abraham Ribicoff of Connecticut and James Pearson of Kansas composed the Study Group. In 1983, they submitted their report to the Senate Rules and Administration Committee. The report suggested, among other things, that limits be placed on filibusters, that a permanent Senate Presiding Officer be elected by the Senate, that the Senate consolidate its committees into fewer units, and that the budget process be simplified. The Study Group's proposals were the subject of a hearing, but the Senate took no formal action on its package of recommendations.

Temporary Select Committee To Study the Senate Committee System, 1984. In June 1984, the Senate established another Select Committee to recommend improvements in the operation of the committee system. Senator Dan Quayle of Indiana was named the panel's chairman. In December 1984, the panel submitted its recommendations for change, which stressed committee assignment limitations (bolstering requirements imposed by the Stevenson Committee). In addition, the Select Committee proposed formation of a Joint Intelligence Committee, a procedure to restrict the offering of nongermane floor amendments, and certain debate limitations to curb some filibusters. When the 99th Congress convened in 1985, some progress was made in reducing the number of committee assignments per Senator.

To be sure, there have been other institutional reorganization initiatives, such as congressional budgeting reforms, the War Powers Resolution, campaign finance changes, the televising of House and Senate floor sessions, modifications of the seniority system, and more. The point is that Congress is not some ``creaky institution'' incapable of revamping its internal procedures, processes, and operations. The large array of reform issues addressed by the 1993 Joint Committee on the Organization of Congress, which this volume highlights and spreads on the public record, underscores the commitment by the House and Senate to strengthen the effectiveness, credibility, and accountability of the legislative branch.