Table Of ContentS. Prt. 103-55
BACKGROUND MATERIALS:
SUPPLEMENTAL INFORMATION
PROVIDED TO MEMBERS OF THE
JOINT COMMITTEE ON THE
ORGANIZATION OF CONGRESS
Y4.3:0R2/M41
Background ffaterials: Supplenental. . .
JOINT COMMITTEE ON THE
ORGANIZATION OF CONGRESS
ONE HUNDRED THIRD CONGRESS
FIRST SESSION
S Prt. 103-55
[COMMITTEE PRINT]
BACKGROUND MATERIALS:
SUPPLEMENTAL INFORMATION
PROVIDED TO MEMBERS OF THE
JOINT COMMITTEE ON THE
ORGANIZATION OF CONGRESS
PREPARED BY THE
JOINT COMMITTEE ON THE
ORGANIZATION OF CONGRESS
ONE HUNDRED THIRD CONGRESS
FIRST SESSION
Printed for the use of the Joint Committee on the Organization of Congress
U.S. GOVERNMENT PRINTING OFFICE
74-592 ±=i WASHINGTON : 1993
For sale by the U.S. Government Printing Office
Superintendent of Documents, Mail Stop: SSOP, Washington, DC 20402-9328
ISBN 0-16-043299-5
JOINT COMMITTEE ON THE ORGANIZATION OF CONGRESS
[Authorized by H. Con. Res. 192, 102d Congress]
SENATE
DAVID L. BOREN, Oklahoma, CoChairman
PETE V. DOMENICI, New Mexico, Vice Chairman
JIM SASSER, Tennessee NANCY L. KASSEBAUM, Kansas
WENDELL H. FORD, Kentucky TRENT LOTT, Mississippi
HARRY REID, Nevada TED STEVENS, Alaska
PAUL S. SARBANES, Maryland WILLIAM S. COHEN, Maine
DAVID PRYOR, Arkansas RICHARD G. LUGAR, Indiana
GEORGE J. MITCHELL, Maine, Ex Officio
ROBERT DOLE, Kansas, Ex Officio
HOUSE OF REPRESENTATIVES
LEE H. HAMILTON, Indiana, Co-Chairman
DAVID DREIER, California, Vice Chairman
DAVID OBEY, Wisconsin ROBERT S. WALKER, Pennsylvania
AL SWIFT, Washington GERALD B.H. SOLOMON, New York
SAM GEJDENSON, Connecticut BILL EMERSON, Missouri
JOHN M. SPRATT, Jr., South Carolina WAYNE ALLARD, Colorado
ELEANOR HOLMES NORTON, DC. JENNIFER DUNN, Washington
RICHARD A. GEPHARDT, Missouri, Ex Officio
ROBERT H. MICHEL, Illinois, Ex Officio
G. Kim Wincup, Staff Director
Walter Oleszek, Policy Director
Kelly L. Cordes, Chief Clerk
John F. Deeken, Professional Staff Member
C. Lawrence Evans» Professional Staff Member
Phiup W. Grone, Professional Staff Member
Nicholas P. Wise, Professional Staff Member
Maureen Groppe, Press Secretary
Carol Hardy Vincent, CRS Policy Analyst
Paul Rundquist, CRS Policy Analyst
Mary Lou Smullen, Special Assistant
DiANNE Lambert, Special Assistant
Shelley Gough, Staff Assistant
Stacey Spevak, Stafif Assistant
Marion Millhouse, Staff Assistant
Jo Meuse, Scheduler
(ID
CONTENTS
Page
A. Summaries of Introductory and (Jeneral Issue Hearings
January 26, 1993 1
January 28, 1993 13
February 2, 1993 18
February 4, 1993 30
February 16, 1993 53
March 2, 1993 68
June 16, 1993 78
June 29, 1993 95
July 1, 1993 109
B. Ethics Process
Summaries of Hearings:
February 23, 1993 115
February 25, 1993 126
Background and Issues in Reform of Internal Congressional Disciplinary
Procedures 136
Options for Ethics Reform 141
Matrix on Ethics Reform 151
C. Budget Process
Summaries of Hearings:
March 4, 1993 166
March 11, 1993 172
March 16, 1993 178
March 18, 1993 189
March 23, 1993 200
March 25, 1993 208
March 30, 1993 214
April 1, 1993 225
Background and Issues on Reform of Congressional Budget Process 242
The Role of the Budget Process in Reducing the Deficit 249
Timing of Budgetary Actions 254
Budget Committee Structure: Some Options for Change 259
Joint Resolution on the Budget 264
What Should Be Included in the Federal Budget? 269
What Budget Reforms Might Provide More Accurate Information or
Better Incentives to Policjrmakers? 275
Unauthorized Appropriations and the Authorization/Appropriation Proc-
ess 282
Changing the Authorization/Appropriation Structure 292
Line Item Veto and Statutory Alternatives _ 299
Summary of Options for Congressional Budget Process Reform 305
Matrix on Budget Process 340
D. Congressional Committee System
Summaries of Hearings:
April 20, 1993 365
April 22, 1993 379
April 27, 1993 395
April 29, 1993 404
May 4, 1993 420
May 6, 1993 : 428
May 11, 1993 437
May 13, 1993 452
(HI)
IV
Page
D. Congressional Committee System — Continued
Background Memorandum on Committee Structure 463
Number of House and Senate Committees and Subcommittees, 103d Con-
gress 473
U.S. House of Representatives, Number of Committees and Their Sub-
committees, 1945-1992 474
U.S. Senate, Number of Committees and Their Subcommittees, 1945-1992 476
Average Number of Members Serving on Senate and House Standing
Committees and Their Subcommittees, 1945-1992 478
U.S. House of Representatives, Committee Assignments, 1945-1992 480
U.S. Senate, Committee Assignments, 1945-1992 482
Number of Committee and Subcommittee Assignments, U.S. House of
Representatives, 102d Congress 484
Number of Committee and Subcommittee Assignments, U.S. Senate, 102d
Congress 485
Impact of Waivers on Senate Full Committee Sizes, 103d Congress 486
Impact of Waivers on the Number of Assignments Per Senator, 103d
Congress 488
Impact of Waivers on House Standing Committee Sizes, 103d Congress 489
Impact of Waivers on the Number of Assignments Per Representative,
103d Congress 490
Selected Indicators of House Committee Activity, By Committee, 102d
Congress (1991-1992) 491
Selected Indicators of Senate Committee Activity, By Committee, 102d
Congress (1991-1992) 494
Multiple Referrals and Committee Jurisdictional Overlaps 496
Table 1. Multiple Referral of Measures by Senate Committee Pair-
ings, 102d Congress (1991-1992) 498
Table 2. Senate Committee Jurisdictional Overlaps, by Subject 499
Table 3. Single and Multiple Referral of Measures to House Commit-
tees (100th through 102d Congresses) 504
Table 4. Major House Committee Jurisdictional Overlaps, by Subject.. 505
Committee Jurisdiction over Executive Departments 510
Trends in Congressional Oversight 540
Jurisdictional Evolution of House and Senate Committees 543
Committee Reorganization: Some Options, a paper prepared by CRS at
the request of the Joint Committee on Congress 608
Members with Proposals to Reform the Committee System, 102d and 103d
Congresses 876
Options for Reform of the Committee System 878
Matrix on Committee Structure 879
Post Hearing Questions on Committee Structure:
Questions for Committee Leaders Testifjdng on the Committee System 884
Response of Senator Wendell Ford, Chairman, Senate Committee on
Rules and Administration 886
Response of Senator John Glenn, Chairman, Senate Committee on
Governmental Affairs 889
Response of Senator Dale Bumpers, Chairman, Senate Committee on
Small Business 892
Response of Senator J. Bennett Johnston, Chairman, Senate Commit-
tee on Energy and Natural Resources 897
Response of Senator Strom Thurmond, Ranking Member, Senate
Committee on Armed Services 901
Response of Senator Ernest Hollings, Chairman, Senate Committee
on Commerce, Science, and Transportation 904
Response of Senator Dennis DeConcini, Chairman, Senate Committee
on Intelligence 907
Response of Senator Daniel Inouye, Chairman, Senate Select Com-
mittee on I ndian Affairs 910
Response of Senator Claiborne Pell, ChairmEm, Senate Committee on
Foreign Relations 914
Statement of Senator Arlen Specter 917
Response of Representative G.V. (Sonny) Montgomery, Chairman,
House Committee on Veterans' Affairs 923
Response of Representative William Natcher, Chairman, House Com-
mittee on A ppropriations 926
Response of Representative Benjamin A. Oilman, Ranking Member,
House Committee on Foreign AffEiirs 940
Page
D. Congressional Committee System — Continued
Questions for Committee Leaders Testifying on the Committee System —
Continued
Response of Representative William D. Ford, Chairman, House Com-
mittee on E ducation and Labor 949
Response of Representative Ronald V. Dellums, Chairman, House
Committee on Armed Services 952
Response of Representative Jack Fields, Ranking Member, House
Committee on Merchant Marine and Fisheries 957
Response of Representative George Miller, Chairman, House Commit-
tee on Natural Resources 959
Response of Representative John D. Dingell, Chairman, House Com-
mittee on E nergy and Commerce 962
Response of Representative John LaFalce, Chairman, House Commit-
tee on Small Business 970
Response of Representative William L. Clay, Chairman, House Com-
mittee on P ost Office and Civil Service 973
Response of Norman Y. Mineta, Chairman, House Committee on
Public Works and Transportation 976
Statement of Representative H. Martin Lancaster 982
Statement of Roger H. Davidson, Professor, University of Maryland
at College Park 983
E. Congressional Floor Procedure, Deliberation, and Scheduling
Summaries of Hearings:
May 18, 1993 985
May 20, 1993 995
May 25, 1993 1007
Background and Issues on Reform of House Procedure and Scheduling 1015
Background and Issues on Reform of Senate Procedure and Scheduling 1024
Recommittal Motions in the House 1033
Table: Motions to Suspend the Rules, 98th-102th Congresses 1037
Table: Bills and Joint Resolutions Passed by the House of Representa-
tives, 94th- 102d Congresses 1038
The Evolution of House Minority Parliamentary Rights 1041
CRS Memorandum: Senate's "Three weeks on; One week off Schedule 1050
Senate Use of the Cloture Rule 1052
Table 1. Frequency of Cloture Action, 66th-102d Congresses 1062
Table 2. Frequency of Action on Cloture per Item of Business on
which Cloture was Sought, 66th-102d Congresses 1063
Table 3. Disposition of Cloture Motions, 66th-102d Congresses 1064
Table 4. Frequency of Dispositions of Cloture Motions, 66th-102d
Congresses 1065
Table 5. Disposition of Attempts to Invoke Cloture on Items of Busi-
ness, 66t-102d Congresses 1066
Table 6. Frequency of Dispositions of Attempts to Invoke Cloture on
Items of Business, 66th-102d Congresses 1067
Table 7. Number of Items of Business on which Cloture Motions with
Various Objects were Offered, 66th-102d Congresses 1068
Table 8. Frequency of Items of Business on which Cloture Motions
with Various Objects were Offered, 66th-102d Congresses 1069
Table 9. Number of Cloture Motions with Various Objects, 66th- 102d
Congresses 1070
The Senate Motion to Proceed to Consider 1071
Table 1. Motions to Proceed not Debatable or Not Offered by the
Majority Leader or Majority Whip, 1979-1992 1079
Table 2. Proportion of Items of Business Involving Cloture Action on
which Cloture was Sought on a Motion to Proceed, 1917-1990 1080
Table 3. Measures on which Cloture was Sought on a Motion to
Proceed, 1979-1992 1081
Table 4. Selected Forms of Opposition to Motions to Proceed on
Measures, 1979-1992 1082
Table 5. Time Consumed by Consideration of Motions to Proceed, Per
Measure on which Motions to Proceed were Offered, 1979-1992 1083
Table 6. Consent Agreements on Motions to Proceed, 1979-1992 1084
Table 7. Disposition of Motions to Proceed, 1979-1992 1085
Table 8. Effectiveness of Motions to Proceed to Consider Measures,
1979-1992 1086
VI Page
E. Congressional Floor Procedure, Deliberation, and Scheduling — Continued
CRS Memorandum: House and Senate Votes by Day of Week 1087
Distribution of Votes in the House and Senate, by Day of Week, 98th and
102d Congresses, by Session 1090
Senate and House Votes, 98th Congress, Number of Votes, by Day of
Week 1091
Senate and House Votes, 102d Congress, Percent Distribution, by Day of
Week 1092
House Votes, 98th and 102d Congresses, Number of Votes, by Day of
Week 1093
House Votes, 98th and 102d Congresses, Percent Distribution, by Day of
Week 1094
House Votes, 98th Congress, Number of Votes, by Day of Week 1095
House Votes, 98th Congress, Percent Distribution, by Day of Week 1096
House Votes, 102d Congress, Number of Votes, by Day of Week 1097
House Votes, 102d Congress, Percent Distribution, by Day of Week 1098
Senate Votes, 98th and 102d Congresses, Number of Votes, by Day of
Week 1099
Senate Votes, 98th and 102d Congresses, Percent Distribution, by Day of
Week 1100
Senate Votes, 98th Congress, Number of Votes, by Day of Week 1101
Senate Votes, 98th Congress, Percent Distribution, by Day of Week 1102
Senate Votes, 102d Congress, Number of Votes, by Day of Week 1103
Senate Votes, 102d Congress, Percent Distribution, by Day of Week 1104
Senate Rule XXII: Commentary by Lloyd Cutler, Senator Howard Baker,
George F. Will, and Norman Ornstein 1105
Memorandum: Measures Proposing Changes in Floor Procedure, Agenda-
Setting, and Scheduling Introduced in the 102d and 103d Congresses 1110
Summary of Options for House Procedural Reform 1120
Options for changing House Floor Procedures 1123
Matrix for House Floor Procedures 1134
Options for changing Senate Floor Procedures 1146
Matrix for Senate Floor Procedures 1158
Options for reform of Congressional Scheduling 1173
Matrix for Scheduling 1182
F. Application of Laws to Congress
Summaries of Hearings:
May 27, 1993 1194
June 8, 1993 1200
May 27, 1993 1194
CRS Report: "Congress' Exemption From Selected Major Legislation: A
Legal Analysis" 1210
CRS Memorandum: Fair Employment Practices Complaint Processes for
Employees of the House and Senate and for Presidential Appointees:
Comparative Analysis 1246
House and Senate Offices of Fair Employment Practices 1259
CRS Memorandum: Summaries of Bills Introduced to Apply Various
Laws to Congress, 103d Congress 1274
CRS Report: "Sexual Harassment Policy: Rules Applicable to Congres-
sional Offices" 1277
CRS Report: "Family and Medical Leave Act: Provisions Applicable to
Congressional Offices" 1281
CRS Report: "The Application of the Freedom of Information Act to
Congress: A Legal Ajialysis" 1286
Congressional Staff Survey — Sections on House Office of Fair Employ-
ment Practices (OFEP) and Office of Senate Fair Employment Practices
(OSFEP) 1313
Options for applying laws to Congress 1339
Matrix on applying laws to Congress 1350
G. Congressional Staff
Summary of Staffing and Support Agency Hearings, June 10, 1993 1358
Staffing and Administrative Reform Options 1379
CRS Report: Legislative Branch Employment: Selected Years (1945-1993).. 1387
Graph 1. Including House, Senate, and Other 1388
Graph 2. House of Representatives Employment, By Type 1389
Graph 3. Percent Composition of House Employees (1955-1993) 1390
Table 1. Legislative Branch Employment: Selected Years (1945-1993).. 1391
VII Page
G. Congressional Staff — Continued
CRS Report: Legislative Branch Budget Authority, Permanents Excluded:
tFhY'osu s a1n9d4s5), 1950, 1955, 1960, 1965, and 1970-1993E (in current dollars in 1396
Table. Legislative Branch Budget Authority 1397
Background on Committee Staff and Funding 1400
Table 1. House Committee Inquiry Funding Authorizations 1408
Table 2. House Committee Staffing 1412
Table 3. Senate Committee Recurring Funding Authorizations 1416
Table 4. Senate Committee Staffing 1420
Congressional Informal Groups: Caucuses and Legislative Service Organi-
zations 1423
Attachment 1 — Caucuses of the 102d Congress 1431
Attachment 2 — Current Regulations Governing Legislative Service
Organizations 1439
CRS Report on "Minority Staffing: A Chronological History" 1443
CRS Memorandum: The Growth of Interest Groups and Its Implications
for Congress 1459
CRS Memorandum: U.S. Congress Official Mail Costs: FY 1972 to FY
1993 (Est.) 1466
Table 1. Official Mail Costs, Fiscal Years 1972 to 1993 (Est.) 1467
Table 2. Official Outgoing Mail Volume, and Percentage of Total
Outgoing Mail Used by the House of Representatives and Senate,
Fiscal Years 1972-1993 (Est.) 1469
Table 3. House of Representatives, Cost and Volume of Outgoing
Official Mail, Fiscal Years 1972-1993 (Est.) 1471
Table 4. Senate, Cost and Volume of Outgoing Official Mail, Fiscal
Years 1972-1993 (Est.) 1473
General Accounting Office 1476
Congressional Research Service 1480
Congressional Budget Office 1483
Office of Technology Assessment 1484
Graph 1. Legislative Support Agency Employment: Selected Years,
1945-1993 1491
Table 1. Staffing of Legislative Support Agencies: Selected Years,
1945-1993 1492
Table 2. Congressional Support Agencies Budget Authority, FY 1945-
FY 1993E (constant dollars in thousands) 1497
Summary of Options for Reform of Congressional staffing 1501
Options on Congressional staffing 1503
Matrix of Administration of the Hill and Support Agencies 1530
H. Interbranch Relations
Summary of Legislative-Executive hearing, June 22, 1993 1546
Matrix for Legislative-Executive Relations 1566
Summary of Legislative-Judicial hearing, June 29, 1993 1573
Options for Legislative-Judicial Relations 1578
Matrix for Legislative-Judicial Relations 1587
I. Miscellaneous
Options for Bicameral Relations 1589
Options for Improving the Conduct of Oversight 1597
Options for Public Understanding of Congress 1618
Options for Information Technology Usage in Congress 1624
SPuobmlei c " RLeeascstoinosn" toof tPhaes t E fRfeoortrsg a nofi z tahtei o Jno i nEtf f oCrotmsm ittee 11662378
List of all witnesses 1654
Text of H. Con. Res. 192, 102d Congress, authorizing the Joint Committee
on the Organization of Congress 1664
Rules of the Joint Committee on the Organization of Congress 1671
