Organization Theory and the Explanation of Important Characteristics of Congress

By and large the Congress of the United States has been studied on its own terms, as a somewhat unique political institution. Studies of Congress are usually considered to be important simply because they shed light on an important institution in the American political system. It is true, of course, that Congress is an important policy-making body and does deserve study for that reason. But there is no reason why substantive importance cannot be combined with “importance” in another sense. It is also important, for example, to develop theory within any discipline which will help explain the phenomena under study. Trivial substantive problems can be made interesting because of the theory which they suggest. And because a problem may already be substantively important does not mean that it cannot be made even more significant by theoretical development. As a result of this substantive focus, research on Congress has produced a very rich body of descriptive data on various components of the institution, including its members and leadership, group structure, committees, party systems, organization, and rules and procedures. Studies have also provided generalizations concerning such things as the decentralized decision-making of Congress and the effects of the seniority rule on the distribution of power within the House and Senate. These descriptive data and generalizations may serve as the content to be explained within the context of a theory. As yet there has been very little effort at theory construction concerning Congress. The data are there—their organization and explication remain.