From the 1910 overthrow of "Czar" Joseph Cannon to the reforms
enacted when Republicans took over the House in 1995, institutional
change within the U.S. Congress has been both a product and a
shaper of congressional politics. For several decades, scholars
have explained this process in terms of a particular collective
interest shared by members, be it partisanship, reelection worries,
or policy motivations. Eric Schickler makes the case that it is
actually interplay among multiple interests that determines
institutional change. In the process, he explains how congressional
institutions have proved remarkably adaptable and yet consistently
frustrating for members and outside observers alike.
Analyzing leadership, committee, and procedural restructuring in
four periods (1890-1910, 1919-1932, 1937-1952, and 1970-1989),
Schickler argues that coalitions promoting a wide range of member
interests drive change in both the House and Senate. He shows that
multiple interests determine institutional innovation within a
period; that different interests are important in different
periods; and, more broadly, that changes in the salient collective
interests across time do not follow a simple logical or
developmental sequence. Institutional development appears
disjointed, as new arrangements are layered on preexisting
structures intended to serve competing interests. An epilogue
assesses the rise and fall of Newt Gingrich in light of these
findings.
Schickler's model of "disjointed pluralism" integrates rational
choice theory with historical institutionalist approaches. It both
complicates and advances efforts at theoretical synthesis by
proposing a fuller, more nuanced understanding of institutional
innovation--and thus of American political development and
history.
General
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