Congressional change: Committees on agriculture in the United States Congress

Committees have long endured as an integral and powerful institutional feature of Congress. Yet since 1970, major external changes may have affected committees and their policymaking. Potential influences include changes in the external environment, membership and panel orientation, and committee organization. Although scholars have linked some specific committee changes to external influences, further analysis of the external influences upon internal committee dynamics and decisions is warranted. To examine these influences, this dissertation provides a longitudinal and bicameral analysis of the House and Senate Agriculture Committees, their policymaking processes, and farm bill decisions from 1970 to 1990. Using an extensive variety of data and methodologies, both quantitative and qualitative, a framework for analysis is first employed to outline changes in the external factors. Second, the study highlights the influences of these changes upon internal committee dynamics by focusing upon strategic premises, committee norms, committee conflict and the use of political strategies. Third, the policy decisions of these panels are examined for their responsiveness to agricultural and nonagricultural interests. Fourth, a longitudinal and bicameral comparison of change in external factors, internal dynamics and decisions is completed for further analysis. The results show substantial and influential changes in the external environment, particularly from interest groups and budgetary pressures. Less influential change is found within committee orientation and organization. Committee dynamics are found to vary over time, correlating closely with the external changes. However, committee decisions reflected long-term stability--a primary responsiveness to agricultural interests, and a subsidiary responsiveness to nonagricultural interests. Lastly, significant bicameral similarities and differences are featured, suggesting the need for further bicameral scholarship. This dissertation extends and deepens the scholarly understanding of Congress, its committees, their policymaking processes and decisions. A focus upon agricultural policymaking in a bicameral and longitudinal perspective has provided the means to highlight the varying influences of external changes, to examine continuity and change in committee dynamics, and to establish the influences underlying policy decisions, a long-neglected aspect of committee research. Lastly, given the functionality of the framework for analysis employed here, a comprehensive theory of congressional committee policymaking may be formulated from its lead.