Subcommittees: The Miniature Legislatures of Congress1

Woodrow Wilson spoke of the “little legislatures of Congress,” in referring to House and Senate standing committees. Perhaps it is not out of place, then, to call subcommittees the “miniature legislatures.” Little systematic academic attention has been given them since Burton French's discussion in this Review in 1915. They are worth understanding, however, for subcommittees often leave an indelible mark on legislation. As one Congressional staff member stated, “Given an active subcommittee chairman working in a specialized field with a staff of his own, the parent committee can do no more than change the grammar of a subcommittee report.” This article deals with the reasons for the existence and growth of subcommittees, with the variety of ways in which they are organized, and with the issues and methods involved in their control. Conference committees are outside the scope of this study.