6.1 Types and functions of committees

6 min readjuly 30, 2024

Congressional committees are the powerhouses of lawmaking. They shape bills, conduct , and develop specialized expertise. handle most legislation, while select and tackle specific issues or cross-chamber concerns.

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Committees wield enormous influence over the legislative process. They can make or break bills, shape policy through and markups, and hold the executive branch accountable. This system allows Congress to efficiently divide its work and develop deep policy knowledge.

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Congressional Committees and Their Roles

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Types of Congressional Committees

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  • There are three main types of congressional committees: standing committees, , and joint committees. Each type serves a distinct role in the legislative process.
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  • Standing committees are permanent panels in the House and Senate that handle bills and issues within their designated jurisdictions (agriculture, armed services, appropriations). Most bills are referred to a standing committee based on the committee's area of expertise.
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  • Select committees are temporary committees created for a specific purpose, such as investigating a particular issue (Watergate scandal, Benghazi attack) or event. They typically have a set duration and are disbanded once their task is complete.
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  • Joint committees are made up of members from both the House and Senate. They are usually established on a permanent basis to oversee specific policy areas (taxation, the economy) or handle housekeeping tasks, like running the Library of Congress.
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Role of Conference Committees

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  • Conference committees are temporary, bicameral panels formed to reconcile differences between House and Senate versions of a bill. Their compromise bill must be approved by both chambers before being sent to the president.
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  • Conference committees consist of senior members from the relevant standing committees in each chamber. The number of conferees from each party is proportional to the party ratio on the standing committees.
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  • Conferees negotiate to resolve disagreements over bill language, funding levels, or policy provisions. The final conference report cannot introduce new matters not included in either the House or Senate bill.
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  • If the conference committee fails to reach an agreement, the bill dies. If a compromise is reached, the conference report is sent back to the House and Senate for a final vote, with no further allowed.
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Standing, Select, and Joint Committees

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Functions of Standing Committees

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  • Standing committees are the workhorses of Congress, responsible for considering bills, conducting hearings and investigations, and exercising oversight over executive agencies within their jurisdiction.
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  • Standing committees hold sessions to debate, amend, and vote on bills before sending them to the full chamber for consideration. They also draft committee reports explaining a bill's purpose and provisions.
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  • Standing committees have the power to subpoena witnesses and documents as part of their oversight responsibilities. They can compel testimony from government officials, private citizens, and industry representatives.
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  • Standing committees play a key role in the budget and appropriations process. The House and Senate Appropriations Committees craft annual spending bills that fund federal agencies and programs.
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Roles of Select and Joint Committees

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  • Select committees investigate issues of national importance, such as government scandals (Iran-Contra affair), social problems (aging, substance abuse), or foreign policy matters. They hold hearings, collect evidence, and issue final reports with findings and recommendations.
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  • Joint committees handle matters of concern to both chambers, such as the economy, taxation, and the Library of Congress. The joint budget committees develop the annual congressional budget resolution.
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  • Most joint committees do not have legislative authority, but the Joint Committee on Atomic Energy (now defunct) could report legislation due to the sensitive nature of nuclear policy.
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  • Other examples of joint committees include the Joint Economic Committee, which studies the U.S. economy and makes policy recommendations, and the Joint Committee on the Library, which oversees the Library of Congress.
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Committees' Influence on Legislation

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Shaping Bills through the Committee Process

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  • Committees are the engines of the legislative process, allowing Congress to efficiently divide its work and develop policy expertise. Very few bills become law without being shaped by the committee process.
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  • Standing committees have the power to "kill" legislation by refusing to act on bills referred to them. Committees determine which bills are considered, amended, and reported to the full chamber.
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  • Committees actively seek input from the executive branch, outside experts, and key stakeholders when drafting bills. Hearings provide a forum for gathering information, building consensus, and generating support for legislation.
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  • Committee chairs have significant influence over the legislative process. They decide when (and if) to hold hearings, which witnesses to call, and whether to markup a bill. The chair's priorities and preferences can determine a bill's fate.
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Conducting Oversight through Committees

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  • Committees are essential for congressional oversight of the executive branch. They monitor the activities of federal agencies, investigate potential abuses of power, and ensure programs are implemented as Congress intended.
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  • The oversight process includes both formal committee hearings and informal communications between committee members and agency officials. Effective oversight can lead to legislative reforms.
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  • Committees can request information from agencies, subpoena documents, and compel testimony from government officials. They can also hold the executive branch accountable through the power of the purse, by cutting funding for programs or imposing spending restrictions.
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  • High-profile oversight hearings, such as those on the Watergate scandal or the 9/11 terrorist attacks, can shape public opinion and lead to significant policy changes or reforms.
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Legislative Specialization and Committees

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Developing Policy Expertise through Committee Service

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  • Legislative specialization refers to the development of policy expertise by members of Congress within specific issue areas. Committees facilitate specialization by allowing members to focus on particular topics.
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  • Members typically seek committee assignments that align with the interests of their constituents (agricultural districts, defense industry) or their own policy goals. Serving on a committee allows members to build knowledge and influence legislation in that domain.
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  • Committee leadership positions, such as chair and ranking member, are highly sought after due to the power to set the committee agenda and shape policy debates. Seniority and party loyalty are key factors in attaining these posts.
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  • Committees foster close working relationships between members and stakeholders in their policy domain, including executive agencies, advocacy groups, and industry representatives. This allows for the exchange of ideas and information.
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Pros and Cons of Specialization

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  • Specialization has benefits, like enhancing Congress's ability to tackle complex issues (healthcare reform, climate change), but it can also lead to turf wars between committees and the neglect of issues that fall outside the jurisdiction of any one panel.
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  • Committees can become too closely aligned with the industries they oversee, leading to concerns about regulatory capture and undue influence by special interests. This is sometimes referred to as "iron triangles" (alliances between congressional committees, executive agencies, and interest groups).
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  • The increasing complexity of modern policy issues has led to a reliance on committee staff for expertise and guidance. This can give unelected staff members significant influence over the legislative process.
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  • Despite the potential drawbacks, the committee system remains essential for managing Congress's workload and ensuring thorough consideration of legislation. Reforms such as congressional term limits have been proposed to address some of the negative aspects of specialization.

Key Terms to Review (19)

Amendments: Amendments are formal changes or additions proposed to a legal document, particularly the Constitution, which allow for adjustments to its provisions and policies. They serve to reflect evolving societal values, correct deficiencies, and address new issues that arise over time, maintaining the relevance and functionality of the legal framework.
Appropriation: Appropriation refers to the process by which Congress allocates specific amounts of funds to various government agencies and programs. This crucial step in the budgeting process allows Congress to control government spending and ensure that funds are directed toward prioritized projects and initiatives. Appropriation is tied closely to fiscal responsibility and the legislative oversight of budgetary allocations.
Appropriations Committee: The Appropriations Committee is a powerful committee in Congress responsible for determining the allocation of federal funds to various government agencies and programs. This committee plays a crucial role in shaping fiscal policy, as it decides how taxpayer money is spent and prioritizes funding requests based on the government's budgetary needs.
Authorization: Authorization refers to the formal approval or consent granted by a legislative body, allowing specific actions or expenditures to take place. This process is crucial in establishing the framework within which committees operate and ensuring that government spending aligns with set priorities. It also plays a vital role in budgetary processes, ensuring that funds are allocated appropriately to various programs and initiatives.
Bipartisan support: Bipartisan support refers to the agreement or cooperation between two major political parties, particularly in a legislative context, to promote shared goals or initiatives. This term often highlights efforts where members of both parties work together to create or pass laws, which is crucial for effective governance and stability in a political system. Bipartisan support is vital in various contexts, as it can lead to more comprehensive policies and broader acceptance among constituents.
Committee chair: A committee chair is a member of a legislative body who leads and oversees the activities of a specific committee. This position is crucial as the chairperson organizes meetings, guides discussions, and ensures that the committee effectively carries out its responsibilities, including reporting bills to the floor and conducting hearings and markups.
Committee membership: Committee membership refers to the assignment of lawmakers to specific committees within a legislative body, which are crucial for organizing the workload and facilitating the legislative process. Each committee specializes in particular areas of policy, allowing members to focus on issues that align with their expertise or interests. This structured approach enables committees to thoroughly review proposed legislation, conduct hearings, and influence the development of laws effectively.
Hearings: Hearings are formal sessions held by committees in Congress where they gather information, question witnesses, and discuss proposed legislation or issues of public concern. These sessions serve as a vital part of the legislative process, enabling both subcommittees and full committees to examine evidence and receive testimony that informs their decisions on legislation or oversight activities.
Joint committees: Joint committees are legislative committees that consist of members from both the House of Representatives and the Senate. These committees are established to address specific issues, facilitate cooperation between the two chambers, and streamline the legislative process by pooling expertise and resources.
Legislative gridlock: Legislative gridlock occurs when there is a stalemate in the legislative process, preventing the passage of laws and resolutions. This often happens when opposing political parties or factions within a party cannot reach an agreement, leading to a situation where no significant legislation can be enacted. Factors contributing to gridlock include the use of procedural tactics, like filibusters, and an increasingly polarized political environment, which complicates collaboration among lawmakers.
Majority rule: Majority rule is a fundamental principle in democratic governance that states that the decision or opinion held by more than half of a voting group should prevail. This concept is crucial in the legislative process, as it helps facilitate decision-making, particularly in large bodies where consensus can be difficult to achieve.
Markup: Markup refers to the process by which committees or subcommittees in Congress review, amend, and revise proposed legislation before it is sent to the full chamber for consideration. This stage is critical as it allows for detailed scrutiny of the bill, leading to changes that reflect the interests of various stakeholders and parties involved in the legislative process.
Oversight: Oversight refers to the process by which Congress monitors and evaluates the actions and operations of the executive branch, ensuring that laws are implemented effectively and that federal agencies are held accountable. This function is critical for maintaining a system of checks and balances, as it empowers Congress to investigate, review, and influence executive actions.
Quorum: Quorum is the minimum number of members required to be present for a legislative body to conduct its business legally. This concept is essential for ensuring that decisions made by Congress represent a sufficient segment of its members, providing legitimacy to legislative actions and preventing a small group from making decisions on behalf of the whole.
Reporting: Reporting refers to the systematic process of communicating information gathered through investigations, research, or assessments to relevant parties. In the context of committees, reporting plays a crucial role in sharing findings, recommendations, and legislative proposals, which helps inform decision-making and ensure accountability within the legislative process.
Select Committees: Select committees are specialized groups formed by either the House of Representatives or the Senate to focus on specific issues, conducting investigations and studies that fall outside the scope of standing committees. These temporary committees can be established for a variety of purposes, such as investigating particular events, examining issues of national importance, or overseeing specific government functions. The work of select committees can significantly influence legislation and policy decisions in Congress.
Standing Committees: Standing committees are permanent committees in Congress that focus on specific areas of legislation, such as finance, education, or foreign affairs. They play a crucial role in the legislative process by reviewing bills, conducting hearings, and making recommendations to the larger body. Over time, these committees have evolved in their structure and function, reflecting the changing needs of Congress and the American public.
Subcommittees: Subcommittees are smaller groups formed within a larger committee, tasked with focusing on specific issues or areas of expertise. They play a vital role in the legislative process by allowing for more detailed examination and discussion of particular subjects, which enhances the efficiency and effectiveness of the committee's work.
Watergate Committee: The Watergate Committee, formally known as the Senate Watergate Committee, was a special committee formed by the U.S. Senate in 1973 to investigate the Watergate scandal, which involved a break-in at the Democratic National Committee headquarters and subsequent cover-up efforts by the Nixon administration. This committee played a crucial role in uncovering significant abuses of power and corruption within the executive branch, leading to pivotal changes in legislation and oversight.
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