Committee Structure of the Iowa General Assembly - 1949

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COMHXTms SITiUGTOrai OF THE IOM GfiflEfcAL AS3IJHBLT - 19k9

Ivan Lir^kiehardson

A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy* in the Department of Political Science In the Graduate College of the State University of Iowa August 19$0

ProQuest Number: 10902189

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Acknowledgement® The author wishes to actaifwledge his appreciation of the encouragement and cooperation given him by Dr* &* G« Whiieael of the Department of Political Science of the 3tate University of Iowa* Indebtedness is also acknowledged to members and employees of the General Assembly for assistance provided in sawing research data*

ii

TABLE OF C O M M ® Chapter

page

I History of the Committee Structure •

1

Territorial Period 183S~18lt6 . * ....... Legislative History • • • • ...... Sise of the Legislative Assembly • • • Sessions of the Legislative Assembly . Committee History • • « « ........ Select Committees * » * * • • • « • • * Standing Committees . . . . . . . . . . Humber • ......... « r . Siae Total Committee Places * ........ Assignments per Individual « # » « « « Period of Statehood 131*6 . . . . . . . . . . Legislative History Slee of the General Assembly . . . . * Sessions of the General Aaseofbly • • • Committee History ♦ Select Committees . . . . . . . . . . . Standing Committees . * * » * « » « • • Humber . . . . . . . . . '• Siae , . « . . * * * . . < « * # * * * * Total Committee Places . . . . . . . . Committee Assignments per Legislator « Committee Staffs ....... II Committee Types , . . . .

1 1 1 2 2 It It h It 5 5 5 5 6 7 3 3 9 9 9 10 10 11

*•

12

PoHtloal Committees . . . . . . . . . . . . Statutory Committees • « . « » * « • « Patronage Committee . ....... * * * • HofMitatutory Committees . . . . . . . Select Cosmdtteee * « « • » * i * * * « Cauous . * » . * « • . » « » * • • * * Patronage Committees . . . . . . . . . Steering Commitiee . . . . . . . . . . Standing Committees . . . . . . . . . Committee on Rules

13 13 13 lit lit lit 15 16 18 19

ill

«

OF CGWfEHfS (continued)

Chester

page

Official Committees * # * • « ' • » * • • » Statutory Committees * « • * • » « * « Select Committees * . Goaaitte© on Credentials . f * # * ■* * Committee on Contested Elections « » , Committee on Confirmation of Appoint­ ments « Standing Committees » . « * * * . » * Committee on ftetrenebnesb end Reform Committee on Interstate Cooperation Jfcn-statutory Committees , « « • * * • Select Committee on Contested Elections • • . Conference Committee « » . . » « • • * Oovermeatal Reorganisation Commission » « « . . . . * • . » . * Municipal Statutes Study Committee * * Standing Cotm<tees «», III Sifting Committees « . * « • • « « * • » * •

20 20 21 21 23

2k 25 25 28 30 30 31 33 35 38 39

kO

Appointment • • • * « * • • , , « » * * * « ItO 31®e and Political Ratio * « * » • # « » • * kl Authority • # * . » * • » « « ' • * « • « * k2 Function o««k3 Dual Function of the Committees k5 Procedure k? Records *.»«*« « * « » # • « • • » * ' • * k9 WithdriMjll of Bills from the Committees * * 50 lark load «« ...... 53 Affect of the Committees * . * , * * , » * 53 Criticism 55 IF Committee Organisation • » « * . . « * * • • Composition of Committees * • » • • • • • » tafcer of Committees Sise of Coisiaitteeo • « » « « « « » • • Comparative Burden of the Committee Asslgrawmts iv

58 58 60 61 6k

ttiftg of oonsm$ (eoAiwd) Chapter

page Selection of Committee Personnel * * * * * * ■ Appointing Procedure' * * * * * * *. *« Accomodation of the Minority «•* . Selection of Clmtraen • « • • • « * **

V Committee Procedure * * # * * * « # «

«*

66 ,66 *69 **#71

*.«77

Standing Buies Committee Meetings * * * * * * . * * * * * * Physical Settle * * * * * * * * • * * Time of Keeting Meeting Conflicts * * ■, * * *■ • • • + • Qnonnii .. * * « * * « » * . * . « . . . Promptness of Meetings * * . ♦ . . . * Conduct of Meetings ^ • Voting in CoMittees * . « « * * ' • * * * • * * Secrecy of the Voting . * *, « * * .» . * Bssfoer of Votes liequirod to Report Bills » * * * * * * * . * * * ** * *

77 78 70' 79 @0 81 83 83 8U Bk 85

Debate * ** .••85 Committee Record® * * * * * * *■ * ♦ • # ***86 Committee Attendance ♦ * * * * , « * . . , * 88 Sub-committees . . . . . . « .« * * * * * * « 89

Public Hearings * * « « » * » » • * * • + ** 90 VI Committee Control * • « « * » * » * • * * * « « 9 5 Deadline Date for the Introduction of BiHs « 95 Committee Classification of BUXs * * * * * * 97 Committee Reports • • • » • * » * « * « » » • 98 Discharge of Committees • * * • « * « • * * *100 VII Legislative Assistance * * * * * * * *

#* * # 102

Essential Aids * • * « • • • • • * ♦ *» ♦ «.103. Staff * . * * « * • • *. * * * *■ *. * * 103 Research » » , » • » • « « * * * * * . 103 Bill. Drafting # • * * * * * # * * * . * « 103 Orientation of $0®* Members *10i v

m m of m m m $ (eontimd) Chqp%mp

page 101*

staff « ■ » * Y*'. #'*'«. Research < * . #• •* . • . . * * ./* # Bill Drafting • .* .»* *' ♦ * * * , * * . * Orientation.of Mew Members » « * • » « « Unofficial Assistance * * # * « * * « . # * * *

Mtf 106 107 107 100

.

Official Legislative Assistance * , . * « » » *

VIII Bill History * *- « » # * » » « « * * • « « * « » » 110 Reference of Measures * + « * • « « * • « » • • Reference Bates « . . « • » » • • * » » » • • * Committee Action Taken on Bills * * * • » * * • Passage * * * * * * * # * . * * « * ♦ * * # ♦ ■ Mend and Pass * « * . « * • i . * > » » . Without Heeoamiendation » * » * « » « . * * Indefinite Postponement * » « » • » » « ♦ lb Reports * * • • « » » « * » * * * » * » Action Taken on Comities Reports Adopted Mended * * « * « • * * * » * » « * # * # Recommitted » * * « « « » * « * « * * * * 2b Action * « * « • # * » * * * * * 4 * » Suture of Cfiwiitte® Reports on Recommited Bills Passage * + * « * » * * - * + * « « * » * * Mendment and Passage • • * » > * • • • • • Without lUKMaend&tion < » * « « « * • • • Indefinite Postponement * » # # * * » » • • l i b Reports . . « » * * * • « « « « « * • * Action Taken on Second Reports • Influence of the Gandttees » « » « * « • * » • IX Observations

111 113 115 116 116 117 110 '

HP 120 120 121 > 121 123 123 123 12ii 125 125 126 126 127

t « < » • » » • « 12®

Legislative Work Load • * « « » • * « i * «• Research # • * # « # • ♦ * * * * • * * • • ♦ « Legislative Planning » • » * « • * • * * « » • Committees 4 , « » , « « « * * * « » « * » * • Footnotes « . « * * • « * * #

vi

# *

» * • *

128 129 130 131

* •

137

TABLE OF COM1SMS (continued) pag®

+f£l

Appendix G f * . » * * * *

▼ii

TABLE OF TABLES

Table

page

I Standi*^ Committee History , * * * * * , * , * , *

151

II Length of General Assembly Sessions * * * * * * # 155 III Previous Legislative &p©ri©noe of Mbere * * * * l£6 IF- Dual Function of 'the Sifting Coramitiees «*■19k9 * • 1#7 V Measures Introduced into Baoh Chamber * * * * * * * 35® VI

Comttte© Sia*®, * .* • * * * * * 4 * .* * *, *. * * . « U 9

VII taber of Committee Aseignaeab® . * • • * * • * * * 160 VIII Measures Controlled by the Coimitteee * * * « • » * 161 K

Value of Committee Assignments i * * * * * t * * # 16.3

X Politieal Ratio of Comities® - 19l*9 * * * * * * *

16&

XI Chairmen With no Seniority * • « • - * • « * » * • •

166

Xll Migration of Chairmen ♦ « * * * « * * • • * * • * «

167

XIII taber of Senator® Assigned to Committees that loot at S&m Hour * * * * * * * * * * * * * * * * 168 XIV taber of Representatives Assigned to Committees that Meet at Seme Hour • • * • • » • * « * « * • *169 XV-

Votes Required to Report Bills * * * » * • * • * •

172

XVI

BiH History * « . * * *• * * * * * * * * * * * *

1?1*

XVII

Committee ReorganissationPlan * * * * * * * * * * * 176

vlli

”.*«In respect to almost no other feature le the government of the United States and its constituent states more distinctive and radically different from that of other countries than in the manner in 'which it has org&niaed itself for to performance of its legislative function. 'Unis unique feature consists in to provision for a system of so-called standing committees ■whose function it ia to give first consideration to all legislative proposals coming before the legislature for action* accompanied by the provision that* not until such proposals have been so considered by these committees and their recommendations in reference thereto have been formerly transmitted to the chamber of which they are a part* is It competent for the latter to give con­ sideration to them.”— ®. F*;Willoughby* Principles of Legislative Organization and Administration, p. 330. Woodrow Wilson commented on the standing committees in his study of congress*, nTh© House sits* sot for serious discussion* but to sanction t o conclusions of its Committees as rapidly as possible. It legislates in its committee roomsj not by the determination of majorities* but by the resolutions of specially-cossaiasioned minorities! so that it is not far from to truth to say that Congress in session is Congress on public exhibition, whilst Congress in its coinialttee-rooms is Congress at work. "— Woodrow Hilson, Congressional Government* p. 78.

ix

Robert Luc® took not© of the critical attitude of oomitteee advanced by Woodrow Wilson, Francis E, Leupp* Paul 3* Retnaeb* President Cleveland* and others when he s&idi flXa spite of criticisms from such eminent sources* 1 hazard the belief that the practice is not bad* but on the contrary is positively good, and whether bad or good is at any rate absolutely necessary as long as our legislative bodies persist in concerning themselves with administrative detail#.* Only by having thirty* forty or fifty *little legislatures* can even a sizable fraction of the work be done. «— Robert Luce* Legislative Procedure* 1922, pp. 192-193* Regardless of opinions expressed on standing committees* they remain as the basic organisation of legislative bodies in the United States*

lb observer of the modern scene denies that committees

play an important part in the legislative process* fliis study was undertaken to determine the procedures used and the role actually played by standing committees in the Iowa Fiftythird General Assembly of 19h9* A bibliography has not been included in this work since, for the most part* the source materials have been the legislative Journals* the Code of Iowa, the Session Laws* the Rules of Procedure, the committee records* interviews* and personal observation during the session*

In all instances the sources of references have been

indicated in the footnotes*

x

1 Chapter I History of the Committee Structure

Although the major portion of this thesis will be devoted to an analysis of the standing committees of 19b9$ it seems desirable to include a brief historical summary of tee legislature to show the influence tradition had upon committee organization of the Fiftythird General Assembly in 19I#* The background material ha® been divided into two historical period®— Territorial and Statehood* Since committees are creatures of their parent legislative bodies, a brief history of tee legislature as well as a committee history has been included under each of the historical periods* !♦ Territorial Period l830-*l8i|6 A. Legislative History 2b© Territory of Iowa was created by an Act of Congress passed on June 12, 1830* The Organic Act established the governmental structure for the Territory and authorized a bicameral legislature* consisting of a Council and a House of Sapresentatives* to be designated the Legislative Assembly** 1* Size of ■the Legislative Assembly mihi j hum >«P»»nnn>i*r®iiii»ni*«i ... Size of the houses was established at a fixed ratio of one to two with a membership of thirteen for the Council and twenty-six

ff

for the low® of Slepreeentativ©®.^ Legislators were apportioned among districts 0£t th® basis of population* Is. S»SioP8 o£ the Legislative Assembly lb© First Legislative Assembly convened In Burlington on November 12, 1838,

The Assembly, meeting annually, convened In eight

regular and two special ©©salons between 1838 and 1846, The first extra session was held by the Second Legislative Assembly in iSiiO, and the second convened in l&Ui as an extra session of the Sixth % Legislative Assembly* The maximum length of time the legislature could remain in session was set at seventy-five days by the Organic ActJ1 Each of the first six regular sessions consumed the full seventy-five days, while the Seventh and Eighth Assemblies remained in session thirtyseven and forty-nine days respectively* Si Committee History A H committee types that were present in the Fifty-third General Assembly of 19&9, with the exception of Sifting committees, were used at one time or another during this period* The basic idea of Sifting committees however did make its initial appearance in the House during the First Legislative Assembly* On January 22, 1839 a resolution was adopted which required! That a committee of three b© appointed to examine into the unfinished business of the House, and make report tomorrow morning as to what business should be acted upon,5

3

The coaaaitte# was appointed, but it apparently did not follow the instructions contained in the resolution*

(The ocmiite© reported

"that th© chief clerk he instructed to employ such additional darks as he may deem noceeeary to complete th® enrollment of bills.. The concept of Sifting committees, as they functioned in 19^9, first appeared in the House in i860 with the adoption of a resolution* That a committee of three be appointed, whose duty it shall be to examine and report the bills on file of & general public nature, and report those which the public interest requires should be acted upon, and that bills so reported shall com© up first in the regular order, and have preference over others#' The committee was appointed, but it never rendered a report to the House# The Senate, being a smaller body, was able to accomplish its work without assistance from such a committee until l36iu In that year, the number of bills had increased to such an extent that consideration for all of them was impossible* To help solve the problem, a resolution was adopted providings That a committee of three be appointed whose duty it shall be to examine all bills now pending before th® Senate and report such bills as, in their judgment, should first b® considered and acted upon to subserve th© best interests of th© State*8 The committee fulfilled the purpose for which it was created when it divided all pending legislation into three classes and recommended Q class one, containing th© most Important bills, be considered first#

il

Committee® Select or special committees, tbea as they arc today, war®

temporary coBsrdttee® created to perform a specific task, with the committee being discharged when the task had been accomplished* Select committees, for a variety of purposes ranging from bill drafting to investigations, m m created during the territorial period* 2* Standing Committees Standing committees, the backbone of the legislature, then as they are today, were created to function throughout the session, becoming a permanent component of the legislative system rather than being discharged after eadh report* a* « ■■***' Number miningIMWP Standing committees,' as a part of the permanent committee organization, were used frequently covering a wide variety of subject matter.

The First Legislative Assembly created fourteen standing

committees in the Council and thirteen in the House of Representatives* From 1838 to 1BL5, the number of committees ranged from thirteen to sixteen in the House and from fourteen to eighteen in the Council* Statistics, in Section 11 of Table I, indicate the number of committee® used in each session* bji Size Size of individual standing committees varied with the sessions in each house* The size ranged from three to seven in the

Council and from two to ten in the House of Representatives, with three and five the most popular numbers in the respective chambers* e» Total Committee Places Total ocswiita© places available on standing committees in ©aoh session (Section HI, Table I) famishes a better guide for judging the committee structure*

In ©veiy session, the number of

places available was lower in the Council than in the House* In regular sessions, the range was from forty-two to fifty-four in the Council and from sixty-one to seventy-seven In the House. d. MAssignments per 'HIndividual l m ■WWittfcaMMMil^il>!»H HilHMM

w w

Average number of ccaaaittee assignments held by individual legislators (Section ST, Table I) is also an important factor in any committee organization* Councilman, with an average ranging from 3.2 to 2»*1# occupied a larger number of committee places in every session than the Representatives whose average assignments varied from 2.3 to 2*8* This situation was the reverse of the number of committee places available discussed above* This, of Course, was due to the fewer number of Councilman among idiom the committee assignments weir© distributed* fe

Period of Statehood I8ii6

A* Legislative History Residents of the Territory of Iowa, began the necessary

6 step® to ®ai» admission into the Onion in October* l$kk* when a constitution was grafted only to b© rejected twice by the voters#

A •newr basic document, drafted in May of 181&6, was ratified on ingust 3f 10&6* The ratification was followed by an Act of Congress on December 28, 181(6 which statedi That the State of Iowa shall b® on®, and is hereby declared to be on©, of the United States of America, and admitted into the Union on an equal footing with the original States in .all respects whatsoever* The constitution retained the bicameral legislature, but the name of the upper house was changed from Council to Senate, and the Legislative Assembly was re-designated the General Assembly, 1» Si&e of the General Assembly 81se of the General Assembly, like its predecessor the Legislative Assembly, was limited by the constitution, The constitution, of I8J46 permitted the legislature to fix the exact else of each house within certain limits# The limits established were that* The house of representatives shall never be less than twenty-six, nor greater than thirty-nine, until the number of white Miabitants shall be one hundred and seventy-fiv© thousand! and after that event, at such ratio that th© whole number of representatives shall never be less than thirty-nine nor exceeding seventyt*o,U The number of senators shall not be less than one-third, nor more than one-half the representative body,,*** The constitution apportioned th® legislators and set the

B±z0 of th© chambers for th© First General Assembly of 18^6 at

7

nineteen Senator® and thirty-nine Representatives*^

The first

apportionment act by the Third General Assembly, In 1651, ani succeeding reapportioments Increased the membership of the houses until the legal maximum of thirty-six Senators and seventy-two Representative® was reached in 1S£6* Under authority of a m w constitution ratified in 1057, the permissible maximum size of each house was increased by the provision that "the senate shall not consist of more than fifty members, nor th® house of representatives of more than on® hundred... The exact size at which the legislature could set the Senate was further restricted by the requirement that Hthe number of senators shall not be less than one-third nor more than one-half the representative body*..H^

Th© new maximum membership appeared in

each house in 1870 under the authority of re-apportionment laws passed by th© Twelfth General Assembly in 1868*^ Th© size of the Senate has remained at fifty members to this date, but th® present size of the House, 108 members, was accomplished in 1906 under the authority of a constitutional amendment adopted in X9Git«17 2» Sessions of the General Assembly Ths constitutions changed the annual sessions that had been employed by th© Legislative Assembly to biennial for the General Assembly*

The First General Assembly convened in Iowa City on

November 13, I0ii6. The legislature has convened in fifty-three regular sessions supplemented by one adjourned and twelve special

sessions# Th® maximusi number of days th© General Assembly could remain in session w m not limited by either the constitution of 1846 or 1857* 11a© number of days th© legislature has remained in regular session® {Table II) has fluctuated through th© years, with a minimum of sixty-seven and a maxim of 106 days* B» Committee History The word committee does not appear in the legislative article of th© State Constitution, However, assuming a committee structure to be an essential part of' a legislative bociy, th© constitution grants the necessaiy power to justify the creation of committees when It states* Each house shall#,,determine its rules and proceedings**, and shall bar® all other powers necessary for a branch of the General Assembly of a free and independent State#^ Based upon this constitutional provision, th© General Assembly, like its predecessor the Legislative Assembly, has made frequent us© of all coranittee types familiar to legislative bodies, 1# Select Comsvitteec The General Assembly, In it® first session in 1866 and in every session thereafter, has shown little hesitancy to create select committees for specific projects# Subject matter assigned to such committee® has covered almost ary topic one could mention*

9

&L sfc&ndia& Caamltt©®© Si Ember of oowifet©®® (Section XX* Table X) in the General Assembly has not been constant* Fluctuations hare been so frequent that th® same number has appeared consecutively in only four sessions in th© Senate and three In the House* The range has been from sirteen to fifty-three in the Senate and frcaa fifteen to sixty-four in the House* In both chambers* th® trend toward a larger number of committees has been almost uninterrupted since the first session in 161*6* Periodically there have been minor reductions*, but major reductions have been made only three times in the Senate and twice in the House* Each ilia© the number of committees has been reduced, the trend toward nor© committees has reappeared almost immediately* After a sharp reduction in the Senate in 1888* the number of committees was increased in 1892* and after a reduction in 1933* the trend re­ appeared in the extra session of the same year* The House, in 1923* abolished twenty committees* but the climb upward began again in 1927* Th® most recent decrease mad© in the Senate by th© Fifty-first General Assembly and in the House by th® fifty-third General Assembly have not been in existence long enough for evaluation* However* the number could be expected to increase if history can b© used as a guide. b* Size The membership of individual standing committees* like th©

10

number, lias been altered from him© to time* A wide variety of sizes has been used# with a great disparity between the membership of *th® smallest and the largest committees*

Th© spread, in regular sessions,

has been from two to twenty-nine in th© Senate and from two to fiftythree in the House*

III© extreme size was reached in the extra session

called to revise the Code in 1897, when all of the 100 Itepreoontatives were assigned to th© comsaitte© on Cod® Revision, like the numi>er of eocsaitteea, th® trend has been to increase the membership on many 19

of the individual coraraittee©, c* NTotal Cossaltte© Places M W M n M m Mi«wwia>**»u»w #miw iiiiii

«*■k**>

Total number of committee places (Section III, Table I) in each regular session has varied greatly in th© history of the General Assembly, ranging from seventy-four to 51*6 in the Senate and from sixty-nine to 1,177 in th© House ©f Representatives* The total in the House, which has tended to us© more and larger committees, has been larger than in th© Senate in all sessions except the first and second, when it was lower and equal respectively,20 d. Committee Assignments per Legislator Examination of the important criterion of average number of committee assigmonts held by each individual legislator (Section 17, Table I) reveals a wide diversity, ranging from 2*5 to 10,9 in the Senate and from 1*8 to 10,9 in the House, In thirty of the fifty* three regular sessions, the average has been higher in the Senate

XI

than in th© House, and the same was true in nine of the twelve special sessions# e* Coiamittee The Practice of employing committee clerks did not appear until 1856 in th© House and 18?0 in the Senate# Section V of Table I shows in tabular fora the number of coawsittee clerks that have been used during meh session#

12 Chapter XX Committee Types Various committee types, familiar to legislative bodies, were found in the I^ifiy-third General Assembly meeting in, I9h9» Both Joint and bicameral forms of special and standing committees, as well as committees of the whole, were used for a wide variety of purposes during th© session* Th© various committee typos have been lumped into two major categories of “political11 and “official0# The author recognizes that in two cases committees did not fit exclusively into either category but overlapped into each classification* For examples The committee on Buies in each house and th© House Steering committee were officially recognized in the standing rules, although their primary function was of a political nature* The above committees as a matter of choice have been included in the “political0 category* The major categories have been sub-divided into statutory and non-statutory. Included in the statuaboiy group are those committees that were created either by statute or concurrent resolution, with the noa-statutory classification representing committees voluntarily created without any legal pronouncement* Th© nature of th© committee, special, standing, joint, or bicameral, will be indicated as each on© is discussed*

13 i&

QmmitJm®

Political committees a© instruments of majority control are familiar to all legislative assemblies. A majority party, Its program endorsed by th® electorate, feels justified in adopting methods designed to expedite its program through the legislature* Th© committees, as instruments of selecting legislative leaders and shepherding the majority program into law, are segments of majority rule on which legislatures in the United States are established* Political coismittees in the Fifty-third General Assembly were both statutory and non-statutory in nature and included special, standing, joint, and bicameral types* JU Statutory Committees In 19i$, no political committee was created by statute and only one was established by a concurrent resolution* 1. Patronage Committee The committee on Patronage was a joint select Goasaitiee created by House Concurrent Resolution 2 in which the Senate con­ curred*23, This statutory committee was not the same as the individual committees on patronage in each house to b© discussed below* The sixman committee was composed of three Senators and three Representatives appointed by the respective presiding officers* The members were all from the Republican majority party*

Th© task of th© cosaniitt©© was*

«**T©»nominate such additional employee© a© may be necessary for th© work of the session and that th© committee recommend the position to be filled* The "additional employees*' mentioned in the resolution, over which th© committee had authority, included only joint legislative help* Th® joint legislative employees included bill drafters, law library stenographer®, research clerks, pages for the law library| matrons; elevator operators, janitors, post office employees; special police for parking, assistants to the cod© editor, archives clerks, and law libraiy clerk. S» Ik>n-statutoffy oomRdttees 1* Select oomsaittee® a. Caucus The caucus, although not a true eommitte©, must be considered in th® political structure because of the part it played in the initial organization of the legislature* Th® Republican majority caucus in each house, meeting before th© session began, nominated members for positions of legislative leadership.

tadnailon® were mad© for th© offices of President Pro

Temper© and majority .floor leader in the Senate and Speaker, speaker Pro Tempore, and majority floor leader in th® House. Approval of th© nominations by th© Republican controlled houses was an automatic formality* The caucus in each hous® also named a patronage oomniite*

15

composed of on® representative from each of the sight United States congressional districts* The caucus m s not active after the organizational phase and it mad® no attempt to bind the members on any particular issues* b» Patronage Qonalttees The raoivstatutory patronage committee, created by the caucus in each house, differed from the statutory one discussed above in composition and authority* The nan-statutory committees were bicameral rather than Joint and each controlled the patronage within its respective chamber rattier than the joint legislative employees* The committee in each house was composed of eight Republican members appointed by the caucus* Salary and official titles of the officers and employees to be hired in each chamber were established by House Concurrent Resolutioalu^ However, the actual number of persons to be employed in each house was left to the discretion of the respective committees on patronagej thus the number of employees in each house was not identical in all categories. Legislators submitted, to their committee, names of persons they wanted appointed to political jobs* The committee made the final decision as to whether the job requests would be approved or denied* The committees succumbed to the pressure of legislators for jobs which in some cases resulted in an over-supply ©f employees* In case the committees refused to honor a job request, the legislator had the task of letting the applicant “down easy** Legislative

1$

personnel indicated to tin© author thro©' »tood>8 that w©r® used to accomplish this job* On® method was to explain to to® applicant m smoothly a© possible,. that there were m job® available at to© present time* la toe second method, the patronage oomittee beeajae the whipping boy with th® legislator explaining that he had submitted the applicant's m m * but the ecjraaittee would tale® no action. In the third method* used before the session began* the legislator would send an applicant to the office of the Secretary or Chief Clerk t© secure a job* thereby shifting the responsibility for getting rid of him to those individuals* Dispensation of patronage gave each legislator an opportunity to favor a few friends with minor jobs if they requested them# However, legislators* sensitive to the requests of constituents* sometimes received more grief than benefits from the patronage system* since job applicants were more, numerous than jobs in some cases* this was especially true of representatives from th© immediate area surrounding the capital. To constituents of such members toe pay scale was appealing* since they could live at home and ©assmute to work daily* Legislators from more distant parts of toe state had lose trouble with an over supply of applicants,: because toe salary was net sufficiently high t© entice any great number of their constituents into moving to toe capital city for the session* e* e—ew* Steering Committee w»»wft)iii«S»wWIMafl8SSw»'

In comparison with the same recocmendation made on th® first report, th® extent to which bills were altered was decreased on Senate files and increased on House measure®. Analysis of such reports shows that five of the Mu® bills pertained to either appropriation© or revenue, The original reports

125

had recommended three of them for passage, one for amendment and passage, and one for th© calendar* She four remaining Mils were res* referred to th© same committees that had originally recommended them for indefinite postponement* 3* »Without Recommendation M M «M||i n ....... I.. Ill1 11llHill)

M M

'Ms type of recommendation vim returned less frequently in the second report® than iii the reports returned by the committee® to which the bills had been originally referred# All seven of such reports were returned by the committees on appropriations* In the Senate, the. 'Sifting mumXttm controlled each of the fife bills#^

In the Berne©, on© Mil had been

recommended for passage «a$ the other for araeMment and passage* iu Indefinite Postponement The percentage of measures on which this unfavorable report was returned showed a sharp increase ever its us© by committees that originally processed the bills* Sine® m m of the fourteen bills In this category had either appropriations or revenue as a subject, they had all been voluntarily re-referred. The members who made the motions to re-refer were not successful in securing a reversal of the original recommendations* Only one of th© second reports set aside action tafcen by the first , committee*

200

ihe original committees had not reported- three bills,

ten had been reported for indefinite postponement, and one for passage*

126

Boporto Th© casualty rat© on re-committed bills w m rather high, but m t always higher than on th© original referrals*

In the houses of

origin* Senate oowittees failed to report 2tf*5 per cant of th© Senate measures* and 21*2 per cent of the House measures never earn# out of House committees* However* when one adds th® fourteen House reports that recommended bills for ”indefinite postponement*4* thirteen of which were adopted* th® mortality rate in the House becomes 60*6 rather than 21*2 per cent* Th© statistics Illustrate again that bills had a better chance of survival in th© second hous® than they did in the house of origin. Senate committees pigeonholed 10,6 per cent of th© Hous© measures, but th© Ion® Senate felH re-committed in the House was recommended for passage. The original committees had not been unfriendly to all of th© fourteen bills* sine© only into had m% been reported* six had been recommended for passage* on© had been introduced by a commitbe© and automatically placed on the calendar* two had been reported for in­ definite postponement* and three had. been placed on the calendar by th® Sifting committees* F, lotion Taken on Second Action taken by each house on second, reports further emphasises th© tendency of the parent bodies to accept recommendations

127

of their committee*« The adoptions outmrabered all other types of action by more than two to on©* G»

y.y..

-%■ Tnfingmf l2 f2 tLof the Committees . 2 £ E S 2 5 » * S B i 5 f f l 3 i i ! *2SSj©iSi33©p©S9i5385583S5fe3&3ii©53533833^w33S3w333nS35mmw3333S33S3

Th© frequency with which 'th© parent bodies adopted report® of their committees apparently justified the statement that on the majority of legislation “committee action is synonomous with legislative action*n This statement is illustrated by the fact that the Senate adopted 10k and rejected sixtyon© of the reccaa- • mendatioas of its comitteos# and. the louse accepted 1+13 of the reports and rejected only seventy of them#

m

Chapter U Observation® This chapter represents an attempt to collect some of the imperfections of the committee structure and procedures discussed in previous chapters and to suggest seme modification® that might be helpful. Discussion will be confined to the oonaaittees awi factors that influenced their operation* Other legislative problems, such

201 as r©~apporbioua©nfc to make the legislature a representative assembly, annual sessions,

and rule® of procedure under which the houses

functioned are beyond the bounds of this topic* Throughout" this discussion th© time element must be boria© in mind* Time was precious in the sixty»five legislative days of the 203 session. Since the legislature regularly meets only for a brief period every two years, any factor that prevented the most economical us© of time was an impediment to th® success of the session. Before turning to th© committee organisation and procedures, other background factors that affected th© committee stag© of the legislative process must be considered*

The legislative machinery was overburdened, because legislators undertook to do a super-human amount of work during th® session* Th© attempted processing of 1157 bills and joint resolutions

affected the whole legislative process* Iffiasy bills .Introduced could be classified as local legislation, sine© they prescribed detailed regulations for local governmental units* ^

This local,^legislation contributed to the work

load of the committees, thereby reducing th® amount of time they had to consider basic policy uieasures which should have been their chief concern*

205 ^ The last minute legislative rush that has been normal in

recent year® should convince representative® of the haposeibiliby of doing a comprehensive job on the mass of legislation they undertake*

legislator®, in the interest of both state and local

government, shouM limit themselves to the formulation of general regulation®: and permit local officers to fill in th© details*^

w& Deficiencies in the research assistance forced legislators personally to do as much research as time permitted, or seek infor­ mation from whatever sources were available* To reduce the influence of pressure groups and supply legislators with unbiased information on which to base sound law®, research assistance should be mad® readily available* The technical assistance should be provided through a Legislative Heferonc© Bureau*

The service should include reference

and research on problems of legislation, hill drafting# and statute

revision*

To be effective, th© service should consist of more than,

just a collection of books, since legislators do not have time -to pore over source material* «

Hi® semi-pemanenb personnel of th® bureau, headed by a

director, should be selected on a non-partisan basis*

£& Ifalglativ:® Planning Legislators, prone to undertake a huge work load, need some assistance In planning the legislative program*

A haphazard method

of individual attack on major problems is not conducive to the best results*

Th© most efficient method of supplying this legislative

programming service is through a Legislative Council* Th® Council is a joint standing cmmibtm of an interim nature*

Hie council would undertake continuous substantive research

on recurrent and anticipated legislative problems, either on its own initiative or at th® request of other legislators or the Executive* Based upon research data, th® Council would draft proposed laws to b© offered at th® opening of the ensui*^ legislature* The Council is not designed to take away the prerogatives of the legislature, but rather to offer alternative solution® far legislative consideration*

The alternative solutions to problems,

accompanied by the research data upon which they are based, permit legislators to make a more intelligent choice of what policy shall be adopted.

m

t o basic ingredient of the Council will b® it© vttwutih staff* t o tmmunh assistance is the chief tiling about the whole Council idea* It collects th© facts, sifts th® p®vt±mnt information, weeds out the impossible solution© to th® problem®, and sharpens the issue to pewit a more concentrated consignation of the nor® promising solutions*

209

t o researchers should be an impartial group appointed on merit*^ t o Legislative Mtarea&e Bureau should be coordinated with the Legislative Council in an ideal organisation# Howwer, since the Oounsdl idea, adopted in twenty-five states by 3£$ft* has not beCn received with favor in Iowa* the Reference Bureau could be created as a permanent organization within the fmmmmk of th© 'State Law Library# Cg, t o oonmittess, the heart of t o legislature, were not organised to function in t o most efficient manner and in keeping with the concept of responsible goverment#

Outmoded oonaittee structure

and procedures contributed some definite defects to the legislative process# Basic to many of the ills were th© large and numerous ccteittos,. which dictated that legislator® would hold an ®&eeasively large number of coasaittee assignments# The apparent deficiencies in the osonittea structure and procedures will be

232 discussed iMividiw&ly. First— r fh® tin* loss of three legislative days in the Senate and four in the Howe# before the eo®£aitt©esj were appointed# m s not compabibl© with a brief legislative- session* fbis tiiae lag ©ould be eliminated by appointing th© standing committees is advance of th© session* Sim© the presiding 212 officer of the Senate is known, Eepresentatives could hold a caucus in advance of the session to select their Speaker# In this way, th© committee structure could bo decided upon and committee

reqmsts of members filed prior to the session* With that infor­ mation* th© future presiding officers could have their committee structure outlined for presentation when the session convened. Second— Accountability and responsibility on th© part of the people*s representatives was m impossibility under the recording system used in 19k9* How is it possible to have responsible governs®®* if the information concerning comitte® proceedings are classified os top secret? Committee attendance and voting records-should bocoa© a permanent part of th© public record. The author is not suggesting that an attempt be made to keep a detailed record of the lengthy discussion© in marking up bills# but the reeord of the roll call vote on the final disposition of measures# along with attendance records should be available to constituents*

m

Third-— Th® uncertainties sufrewindliag public hearings was not conducive to equitable and efficient procedure#* Th© basis for granting hearings as mXl m th© method and time of giving notice should be standardised* Hules and procedure® used in conducting hearings should be formulated and made available for th© guidance of those who are planning to mk® an appearance# Fourth-— The precious tiia© consumed by the eoasitteee in th® consideration of Mils m ® m b in keeping with a brief legislative session* Either th® outright creation of Joint oomaittees* which would be preferable* oer voluntary agreements among th© companion committees

%& hold Joint meetings* would be more economical of time than the present system, ^ Fifth— Delay in the introduction of appropriations bills was not conducive to th© deliberate consideration of financial matters* since over hO per cent of the appropriations measures were introduced during the last thirteen legislative days* _ the committees* authorising the expenditure of millions of dollars* should be provided with extra assistance in th© performance ©

of their specialised task, the assistance could b© in the fom of permanent clerks who were specialists from the Reference Bureau or research section of the Legislative Council* " Sixth*— Th® impossibility of some of too members attending their committee meetings further reduced responsibility. Meeting

13k

conflicts p f O d M afenbflONt with 4 possible excise for inaction* 3©v®nfch*^Th® Imrwdibl® lumber of bills on which acme member© m m assumed to have a sufficient knowledge to oast an intelligent eowaiits© vot® needs little eowteist* To expect a person to knew thoroughly the contents of oxer 200 bills passing through his committees, In addition to other bills on which he had to vote is unreasonable*

To alleviate the sixth and seventh defects, the raamber and sis© of committees Should be modified to reduce th® number of committee places,

Table XVI indicates a suggested consolidation plan* lb©

names of 19k9 committees that would be consolidated are listed under the name of the new committee* The last column Indicates the approximate work load that each committse would have carried had such

a plan been in operation in 191$#^* Bills that were referred to th© coanitteos Whose nameo do not appear on the table, would be assigned to a new co®aitt@® on the basis of subject matter* For' examples Senate Bills referred to the Governmental Affairs committee would have been referred as follows* Senate Files 36, 62, 66, 106, 301,

377 to committee on Local Legislation} &$>, 66, 363 to State Administrationj 7k and UlB to Public Works? and 1?6 to Public Welfare* consolidated committees should make frequent use of subcommittee®.

When th® general subject matter of a committee

includes special topics, definite sub-comaittees should b® created*

135 Such a procedure would permit specialization a M detailed analgia of topic®, bat at th* same time concentrate related material under tb* control of o m committee,

Such a concentration would make It possible

to secure a coordinated treatment of the who!© subject rathor than having many committees working independently on related problems# To achieve a inore equitable distribution of the work load, the reduction in the number of coxmaittees should be combined with a limitation on the number of comittee places eaoli member la permitted to occupy.

It is suggested that each person be limited to a maximum

of four committee assignments, except members sitting on the committees on Rules or Enrolled Dills shall be permitted to hold five committee places#

It is further suggested that the choice of assignments be

limited so as to prevent any overlapping membership on the committee®, on Appropriations, Judiciary* Local. Legislation, State 'Administration and ftays and Means. Organ! national and procedural modifications will not necessarily result in Improved substantive law.

However, modernisation

of the committee stage of the legislative process will have two primary results.

In the first place* impedimenta will be removed

from the path of legislators, thereby increasing their effectiveness. Secondly, by reducing the dispersion of functions and publicizing conanittee activities, constituents can follow the proceedings of their General Assembly*

136

Unless 'th© ooonlttee organisation and legislative procedures are re~vamped9 the creation of a Sifting committee will be mandatoxgrf the much criticised sifting technique will continue to be the only method by which the legislature can hop© to accomplish a major portion of its work,.

137

Footnotes

X*

at l#rg»j 1338, Vol. $$ Ola. 96, pp. 235-210.*

2* la. 3%.

at jEaro-j XB30, Vol. 5, Oh. 9-6, See. U# P* 236.

3* Tor a octBplete history of the legislature ©e© John E. Briggs, ^History and Organisation of the legislature in Iowa,” Iowa Applied History, Vol. Ill, 1916, pp. 5-123.

k» Us. H«

iMMtes at large, 1838, V©1, 5, Ch. 96, See, 4, p. 237,

5. House

Journal, 1838, p#264,

6 . House

Journals 1038, p.273#

7. House

Journals i860, p#600,.

0* Senate Journals 1864, p. 552* 9. Senate Journal, 1864, pp. 554-555j for a complete discussion offchi 3%Hx£g Gmmibtem in 1949 N » Oh, 3# below*

30* H* S* Statutes at Lmte, I8I46, Vol. 9, Ch. X, pp. 117-118* 11, Constitution of Xsmt»101,6, Art* III, Sec* 30* 12, Constitution of Iowa,1346, Art.* Ill, Sec, 6. 13* Constitution of Icwa,1846, Art* 12* 14. Congtitutlon of Iowa*1857, Art* B, Sec* 5. 15* Constitution of Iowa,1857, Art* III, See, 6* 16* laws of Iowa, 1868, Oh* 152, pp« 209-2135 Ch. 1.82, pp. 268-270. 17* A 1908 amendment 'to the Constitution of Iowa. 16* Constitution of Iowa* 1057, Art* III, Sec* 9. 19* For the name and site of each eomltte© sine© 1917 see Appendices A and B belowj prior to 191? ®e® Frank E, Horack, wIhe Committee System,,” Iowa Applied History, Vol. Ill, 1916, PP. 576-585*

20-^ Tor a dismission of why the House has used more and larger eonsitteoe see pp. 10-11. 21* House Journal* 1949# p* 13*

2g* tomb* iSBBh 1^49, p. 193 House Journal* 1949# p* 13. 23* Saaatg Jouaml* 1949# pp. 79-80* House Journal, 1949# pp. 85-86. 24. House Journal* 1949# pp. 16-18. 25. For examples ibere were thirty doorkeepers# ©loven Janitors# and

six special policemen in addition to the m m t o m special clerks, assistant sergeanb-afc-anas# and miscellaneous help in each house.

26. House Buie 52# Buies of Procedure. 1949# p. 67. 27, House Journal, 1949, p. 695. 28, George B, Galloway, Congress at tbg Groaerpedg* p, 110. 29. gippublished rules adopted by the Stseri^j committee in 1949. 30, Unpublished rules adopted by th© Steering comitt®© in 1949. 31, Senate Bui# 37# Rules of Procedure# 1949# p, 42, 32. For a complete discussion of the Sifting committees see Ch. 3# below, 33, The committee members war© appointed on January 13 in the Senate and on January 18 in the House, 34* Constitution of 1mm, 1857# Art. HI* Sac, 9. 35. She Governor was also a part-time farmer which gave th© farm bloe domination of top positions in both the legislative and executive branches of government, 36. hms of Iowa# 1858# Gh, 126#Sec. 3* p. 248. 37. jM® of Iowa* 1873, See. 2,7, 36. Senate Journal* 1949# p, 1| House Journal* 1949* p. 1,

m

p* 1$

3gSSte irati*

-torrel* isk9j(. p* %*.

'Is* x* gPM® Jouryl, 1949# p* 2*

42* For a discussion of th© Contest ecaraiittee used to settle legislative contests see pp. 23-24, below, *£ XfM^J^ s * 58*1*58*7, fo&f Hi

lm&* 1^1, See. 392*

45, Code of Iowa* 1851# See. 392* 46. Code of Xewfo 1851# See* 394* 1*7* Laws of I©»a, 1927# Ch. 9# 3©c. 1, p. 6. 48. Code of Iowa. 1897, Sees* 18V183. 49* Laws of Iowa, 1913, Ch. SO# See. 1, p. 24. 50* Laws of Iowa. 1943# Ch. 43, See* 1, p. 62. 51. Laws of Iowa* 1943, Ch. 43, See. 1, p. 62. 52. Code of lorn, 1897, Sec. 182. 53. t o

of Iowa* 1949# Ch. 39# p.68*

54. Lawe of Xcsm. 1949# Ch. ■44#, See. 2# p* 73* 55. Code of Iowa* 1897, See. 103* 56. For a complete discussion of th© committee see William 3, Shepherd# Tbs Legal Status ansi Activities of th© Iowa Interim Cormnittee* 35Q*1'm eeT i^M e ^CniversKy ''of Iowa,. 57* Sous© Journal* 1939# pp. 1403-1404* 58. Hoag© journal* 1949, p. 622*

59. Borne Journal* 1941# pp* 461-463* 60*. House Concurrent isolation 25, Sec* 6# House Journal* 1939, p. ii$5*

140

61* Apparently recGHsa©adafcions offered la the ©omaiitte® report of 1949 were not favorably received by the legislator© since m m of the recoiaaendatiom pertaining to the legislature were adopted* 62. God® of tow®. 1851, See, 381. 63. Constitution of loweu 1857, Art* III# Sec* 7* 61** House Journal* 19l*9# p* 29. 65* Bouse Journal* 191*9* p. 181*. 66, House Journal* 1949, p. 200*

^7* Bouse Journal* 1949, p* 127* 68* House Journal, 1949* p. X£7»

&9m George B* Galloway,Coatees at the Qrossroads, p. 9970, JointRule 1, Rules of Procedure, 1949* P* 17* 71. JointRule 1, Rules of Procedure, 1949, p. 18-19* 72* JointRule 1, Rules of Procedure* 191*9, p* 18, 73* Congressional Record, February 27, 1934, pp. 3277-3278*

7km Joint Rule 1, Rules of Procedure, 1949, P. 18* 7^*

Jcmrnal, 191*9, p. 95*

76. Lass’s of Xovra, 191*9, Gh. 254, PP* 334*336, 77* Laws of Iowa, 1949, Ch. 254, Sec* 4, p. 334. 7®* Iffi® »£

1949* Ch. 254, See, 4*pp* 335-336.

19m Laws of 'Iona, 1949, Ch* 254, Sec* 4* P* 335.

80* Laws of Iowa, 1949*Oh, •'254*/See# S, p, 335. 81* Laws of Xpwa, 1949* Gh# 254* Sec* 10, p* 335* 82, Lara of Iowa, 1949, -Gh* 254,

Sec, 6, p. 335*

141 6** Ssest a£ Sssb 19k$*

2^,

■®4* i s 2£ & S b ^49# Ch. 30B# m

f* x#t

39&*m,

®* 4«P* •*£ &*■*» 1949, Ch# 308, Sec* 2, p. 3jjg* 86* i S M

I 3 2 0

1 X X 2 2 '

0 0 X 1 2 3 3 $

12 10 9

2

8

7

^Inforsmtioa coa^iled treat Legislative Dir®atom 19l$.

357 Table Dual Function of th© Sifting Co«&ttte*8 * 191*9

Ho Report

Reported

A, Senate X. Senate Files 2* Senate Files

2k m

3* House Files lu House File®

k3 11

Referred Directly - 69 Taken from Standing Committees •* 16$ Referred Directly - 121* Taken from Standing Committ©©® - 17

h$ 33 81 6

B* louse 5. House Files 6. House Files

2 71

7. Senate Files 8* Senate Files

7 U*

Referred Directly -* 2 Taken from Standing Committees ■* ?1 Referred Directly « 22 Taken from Standing Committees - ll

0 0 35 0

^Information compiled from# Journal of te© Senate^ 19li9j Journal of the House, 19l*9*

158

Table ?*

Measures Introduced into Each Chamber

ssmi'B fear

Q*A*

File®

1517 1515 1521 1523 1525 1527 1525 1531 1533 1535 1537 1535 151*1 151*3 151*5 151*7 151*5

37 38 35 1*0 1*1 1*2 1*3 1*1* 1*5 1*6 1*7 2*8 1*5 50 51 52 53

601 51*5 755 761 330 1*1*7 $Q9 1*33

Total

HO05E «ra**e

Total

mat s

to 536 512 558 352 2*1*6 5o5 522*

16 11 10 1* 3 6 30 11* 13 12 6 30 11 11 31 35 11

617 556 805 765 333 2*53 515 U*7 02 to 51*2 522 565 103 1*57 520 535

623 573 876 832 1*06 521 51*6 588 611 5a 552 655 563 496

8825

171*

5003

4U * %

Total

a 631

8 5 2 10 7 6 9 10 9 8 16 8 4 6 11 10 a

631 578 878 81*2 to 527 555 598 620 529 568 663 567 502 1*90 554 622

9997

iiiO

10137

Information secured front Journal of tfoa Senate, 1917“1?«9} Journal of the Hoags. 1917-19)*?,

Table Vl*

Goraraitte® Size®

Senate Size

Humber

k

1 5 1 3 2 2 k 1 1

5 6 7 8 9

10 11 12 13

3k

k07

15

1 1

Total Joist Com*

6

1 1 1

1

3

19 23 2k 25 26

k 25 21 16 18 ko 11 12 13 U2 15 16 51 15 23 2k 25 26

1h 16 1?

Committee Places

3 1 1

1 t p

House of Repieeeatatlves Committee Size Misifeer Place® 8 9 10 11 12 Ik 18 19 20 22 2k 25 26 29 31 32 33 3k 35 36 ko k9 52

8

1 1

9

1

10

1 1 1 2 2 k

n

2 2 1 3 1 1 1

12 ik 36 38 80 kk 2k 50 26 58 12k 32 66 68 35 103 80 k9 52

38

99k

■2 1

t 1 2

k 1

1

7 TOT

^Information taken from* Journal of the Senate^ 19k9j Journal of the Houae3 X9h9. — — — ■

160

Table ? H *

Mtxtr of Committee Assignments

Chairasai** ship 1 X 1

Senate fcibar** ship

He« of Senators

8 7 6 10 9 8 I

13 18 6 2 X T 3

House of Representatives Ho, of Chaixmi*- Member­ Eepresentatives ship ship 1 X X •X X X

12 IX 30 9 a T 12 11 30 9 © 1

1 2 5 13 34 k t 6 16 25 17 2

^Information taken from? Senate Journal, X9h9} House Journal, 19lt9,

Table Yin*’ Measures Controlled by the Committees

Semi® Committees Horn® Com* lb* % )b# Ho. 1949 19k9 1949 Aeronautics Agriculture Agriculture II* Horticulture and Forestry Appropriations Banks* Building* and Loan Board of Control Cities and Tomas Claim Compensation of Public Officers and Employees Conservation Consolidation and Coordination of State Goverxsaent Constitutional Amendments County a1^ Township Affairs Dairy and Poods Departmental Affair® Election® Reform Enrolled Bills Fish and Game Governmental Affairs Hoads and Highways Insurance Interstate Cooperation Iowa Development Judiciary I Judiciaiy II Labor Liquor Control Manufacturing, Commerce and Trad® Motor Vehicle® Military Affairs Mines and Mining

5 13

0*6 1*6

3 72

4.8 0*9

30 55 7

o,4 9.1 1.5 1*3 7.0 0*9

1*5 3*1

28 20

3.5 2.5 0.5 0.4 3.4

12

1.5

4 3 27 9 13 17 a

2.7

2k 2k 25

2*9 2.9 3.1

19 15

2*4 1,9

83 84 8 6 24

10*5 30,6

16 5

2.0 0*6

5

t

16

0 ,6 2*0

3 4 5

66

8,1 1 .0 1*6

1

6

8

7 I

33 39 7

9

12

10

25

11

It 13 lit 15 16

17 18

19 20

a

% 1949

22

1

0*1

23 &k 25 26 27 28 29 30 31

16 53 83 h

2.0 6,5 30.2 0,5

7 30 15

0,9 3,7 1 ,8

12'

1*1 1 ,6 2,2

1.0 0 ,8

3.0

162

Table VIII (continued) Measures Controlled by the Gopaittee®

Senate Committees House Committees Com* Kq, % Ho* % »>. 1949 19h9 19k9 19k9 Po3J.ee Regulation* Suppression of Crime and Intemperance Printing Private Corporations Pharmacy Public Health Public lands and Buildings Public Libraries Public Utilities Railroads Rules Schools and Educational Institutions Sifting Social Security Tax Revision Ways and Means

32 33 34 35 36 3? 38 39 4o 41

5 2 2 14 8 3 2 2

0*6 0*2 0*2 1.7 1*0 0*4 0.2 0.2

8 8 4

1*0 1*0 o.5

20 13

2.5 1.6

5 5

0.6 0*6

42 43 44 45 46

IS 202 23 22 27

2.2 24.8 2.8 2*7 3*3

42 24 31 12 46

5.3 3*0 3*9 1*5 5*8

815

99*9

m

100.4

•» The statistics in this table include files and joint resolutions* The xember and percentage assigned to each committee include measures introduced by each committee? measures referred to each? and measures that were re-committed to a committee other than the one that originally received it* Bata secured fTomt Senate Journal* 19h9f House Journal* 1949*

m

Table i t Value ol Oasmiltee Assignments

Pereent of Bills

Senate Mo* of Bills

Bo* of Members Hop* Bern*

i*0 35 30 * 2$ 20 — 15 10 *

326-376 289-329 210*-281* 203-21*3 163-202 122-162 81-121

0 0 3 9 17 xi* 1*

1*6*1 39*9 3i*.9 29*9 2l*«9 19*9 li*.9

House

0 0 0 3 1 1

a

S5q* of

Bins 310-366 278-318 239-276 199-238 159-198 119-458 79-4X0

Ho* of Members B®p*. Deai* 1* 17 16 19 23 8 1

0 2 h 5 11 ' 6 x

^laformtion compiled from? Journal of tjy Senate* 19l*9j Journal of tbs Wam&M 1Sh9$ legislative B3^oofeoS*^9'Sf»

labl® X* Political Ratio- of Cconlttaea «* 1$k9

Senate Democrati© SAm Amups '

CCHBHl* Stm 26

25 2lt 23 19 IT 17 17 16

1$ Ik 1h lii 13 12 11 10 10 10 10

9 9

8 8

7 7 7 6 ir $ 5 $ 4? 5 h

3 2 ii Ji 3 3 3 3 2 2

3 0 2

1 2 2 2 1 1 1 0 1 0 2

2 X X 0 1 2 1 1 0 1

Minoritgr Ratio

u*5 8*0

16*7 i?#is 26*3 17.6 17*6 17*6 '12*5 13*3 21*14 0*0

Hut 7*7

16,6

18*1 20*0 10.0 10*0 10*0 0*0 11*1 0 .0

25*0 28.6

304*3 3i4.3 0*0 20*0 1*0*0 20*0 20*Q 0*0 25*0

Com* Sim

52 is? ho 36 36 36 % % % 33 33 * 32 31 31 31 31 29 29

Home® Beiaoopatio MaacSawe'

Is 3 5 10 § 5 7 lit 6 11 12 8 6

Minority Ratio-

1*7

6*1

12*3 27*7

11*1

13.9 20*0

ill*1 17*6 33*3 36*ls 25.0

9 3

19.3 12.9 19.3 38*7 3lu5 31*0 11*5

25 25 2ii

6 8

2lt*0 32.0

9

22 22 20 20 20 20

10

37.5 it5.li 1*0 .9 5o.o

26

I? 19 18 18

lit

is 6 12 10

9

10 6 8 10 6

7 9 6 2

30.0 1|0*0 50.0

31.6 36*8

5o*o 33*3 lii.3

u$

Table X (continued) Political Ratio of Committees - 3Sk9

O hmh^ Sis© 3

Senate Democratic Members 1

^Unerity Ratio

Coot * Size

33.3

12 11 10

9 8 r

House Democratic Members

Minority Ratio

h 5 2. % 3 3

33.3 tf.lt 20.0 22*2 37.5 tf.8

^Information compiled from* Legislative Directory^ 19h9} Journal of the Senate* l$h9i Journal of-fee-

Table XI* Chairmen With Ho Seniority

Sonata Cossaittee taker

Horn®

Percentage Of Bills

Committee taber

Percentage of Bills

A. Experienced Legislators With Ho Seniority 16 23 38 kz 1*5 16

1.5 2.0 0,1* 2,2 2.-7 3.3

7 10 12 13 15 16 17 32 3k 37 ti> 111 W*

7.0 2.5 o.k 3*k 1*6 2*2 0,0 1.0 0.5 1.6 0*6 0*0 3.5

B»: Freshman Legislators 9 17 22 29 33

1.5 0.0 0.1 3.7 0*6

1 11 17 31 33

0.6 0.5 0,0 0*6 1,0

^Information compiled from Legislative £>freoto|y> 19h9$ Jourml of t o • Senatej 19k9} Journal of t o IIoua®r^9w*

167

Talils XII* Migration of Chairmen

Senate House Com* Ho. Percent Com* )fe» Percent Com* Ho* Percent Com* Ho* Percent 19k9 19k9 19h9 191*9 I9h7 1*1*7 1*7■191*7

29 ho

2.5 0*6

33 1*5

2.0 2*7

25 2 16 1*7 29 17 9 lit

P.2 1.5 1.0 0*5 lui 0*0

3.6 1*0

7 10 15 32 31* 37 1*0 lil

7.0 2.5 1.6 1.0 0 .5

1.6 0*6 0.0

‘information coEgJllad firaau Journal of tbs Sonata, 19l*9j Journal of the Housea l?it9j ComLtteeeVlLffi^T

m Table XIII taber ot Senators Assigned to Committees That Meet at Same Hoar

Time of Meeting T-Th-9i00 T-#*oo SMMUOO W-ltOO

Gomibtaes Agriculture Public Utilities Banks, Building aad Loan Compensation of Public Officers and Saqployees

Ms* of Con­ Percent of flicting Assignments fork Load

2

1*9 0*2 1*0

2

1.5

&«2sOO M-2*00 M~2s00

Board of Control Military Affairs Private Corporations

1 1

1.6 1.8 0.2

Th-ltOO Th~l*G0

Oovermental Affairs Pharmacy

1

2.8 0*2

T*-13>"Lj30 Th~l*30 T-li30

Hi^sways Publie Libraries Labor

2 k

2*8 OmU o*5

T-*Tfa-*l*00 T—1*00 th-.l*00

Insuranoe Public Health Pharmacy

3 1

3.0 1*6 0*2

Th*»2100 Th~2*G0

Manufacturing, Commerce and Trade Railroads

3

0.9 0.2

ft~2*QQ B-2*00

Motor Vehicles Tax Revision

2

3.7 2*7

Table XI? taber of Representatives Assigned to Committees That Meet at Smm How

Tima of Meeting

Committees

$©* of Con* ■ Percent of Piloting Assignments Work Load

M~3i30 W»30 M-*3s30

Aeronautics Dairy and Food Agriculture I

M~3*30 M«3*3Q

Agriculture I Dairy mad Food

$-3*30

Agriculture II, Horticulture and Forestry Elections, Political and Judicial Districts Printing

£ 0 *3 0

Mi30

2

2*2

1*0

3.5 2*0

3

1*5 _ ft 0*1*

5

1*3 1.5

11

5*3

k

2,0

Conservation, Drainage and Flood Control Motor Vehicles, Commerce, and Trad© 10 3 Departmental Affairs

2*5 3,0 1,6

Banks, Building and Loan Constitutional Amendments

M-l»30 5^1*30 M-ls30

Board of Control Tax Revision Schools, Libraries, State Educational Institution®

Th-ls30

Compensation of Public Officers and Employees Military and Veterans Affairs

W-I»30 K~lt30

5

,31 1?

W-lsOO MLiOQ

W-li30

0*1*

9*1 7*0

Th-lt30

Th-1*30

9

1*6 1*1

12,1

Appropriations Cities and Towns Compensation of Public Officers and Employees Military and Veterans .Affairs

M23Hdt30 T**l:30 Th-1*30

6

0,6 1*1 1*6

6

3.5

Table XI? (contimed) totber of Representatives Assigned to Committees That Meet -at 3am© Hour

flas of Mseting

Committees

Percent Hb* of Con­ of flicting Assigisaeni© Work Load

W-3O0 W-3i30 W-0*3Q

County and Township Affairs Insurance Public Utilities, Telephone, Telegra^, and , Express

3.U

W-1*3Q W~ls3Q

Departmental Affairs Motor Vehicles, Commerce, and Trade

1,6 3.0

M-2:30 M-W-2 i30 M-2«30

Fish and Game Roads and Highways Judiciary I

1-3t30 1-3 130

Insurance Public Utilities, Telephone, Telegraph, and Express

M*2s30 M-*-2j30

Judiciary I Roads and Highways

T-2t30 T-2i30 T-2i30

Labor Railroads Private Corporations

1,0 0*6 o*5

Th-3«30 Th-3s30 Th-3s30

Liquor Control Mines and Mining Social Security

0*3

Th-3i30 11^-3*30

Mines and Mining Social Security

0*6 3*9

Th~2*3G

Police Regulation, Suppression of Crime and Intemperance Way® and Means Public Lands and Building®

1.0 5.3 1*6

Th-2*30 Hi-2*30

1.9

0,6

2*k 10.5 1*9 0*6

13

10.5 2*1*

0*6 3.?

171

table XIV (contimed) Mumber of Representatives Assigned to Comittajfts that Meet at Same Hoar

time of Meeting T-3*30 1-3*30 T-3«30

Committees

Ho* of ConPercent Olcting of Assignments Work Load

Printing Elections* Political and Judicial Districts Agriculture II* Horticulture and Forestry

M*30 t-2*30

Private Corporations Railroads

W-2*3Q M-f-2 :30

Public Health and Pharmacy Roads and Highways

Ih-2s30 Ih-2*30

Public Lands and Buildings Ways and Means

1*0 1

2.2

Z

0*1

0*5 i

0* 6

ax>

2*5 Z*h

7

5*8

1*6

172

Table M

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Sami® Ccwanu Size

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Q&sm* sim 32 19 35 52 15 31 26

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Table IIT (eoirfeimed) Votes Required 'bo Report Bills

Senate Comm, Siae

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