<DOC>
[Cannon's Precedents -- Volume VIII]
[From the U.S. Government Printing Office via GPO Access]
[DOCID: f:cannon_cclxxviii.wais]



                         Chapter CCLXXVIII.\1\

 
                    PARTY ORGANIZATION IN THE HOUSE.

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   1.    The caucus. Sections 3602, 3607.
   2.    The caucus journal. Section 3608.
   3.    The caucus rules. Sections 3609, 3610.
   4.    The floor leader. Sections 3611-3614.
   5.    The whip. Section 3615.
   6.    The committee on committees. Sections 3616-3620.
   7.    The steering committee. Sections 3621-3625.
   8.    The patronage committee. Sections 3626-3629.

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  3602. The caucus, like the House, organizes ab initio for each 
Congress.
  On March 30, 1917,\2\ at the first meeting of the majority caucus for 
the Sixty-fourth Congress, on motion of Mr. John J. Fitzgerald, of New 
York, the following resolution was adopted:

  Resolved, That the order of business of the meeting of the caucus 
shall be as follows:
  1. The nomination of a Speaker of the House of Representatives in the 
Sixty-fifth Congress.
  2. The nomination of a chairman and other Members of the Ways and 
Means Committee of the House of Representatives in the Sixty-fifth 
Congress.
  3. The nomination of the officers of the House in the Sixty-fifth 
Congress, to wit: The Clerk of the House, the Sergeant at Arms of the 
House, the Doorkeeper of the House, the Postmaster of the House, and 
the Chaplain of the House.
  4. The consideration of such other matters touching the organization 
of the House in the Sixty-fifth Congress as may be brought before it.

  3603. On May 17, 1919,\3\ in the minority caucus, Mr. William 
Kettner, of California, submitted the following resolution which was 
agreed to:

  Resolved, That the order of business for this session of the caucus 
shall be as follows:
  1. Election of the chairman, secretary, and assistant secretary of 
the caucus for the Sixty-sixth Congress.
  2. Adoption of rules of the caucus for the Sixty-sixth Congress.
  3. Nomination of a candidate for Speaker of the Sixty-sixth Congress, 
who, as heretofore, ex officio shall be the minority leader.
  4. Nominations of candidates for (a) Clerk, (b) Sergeant at Arms, (c) 
Doorkeeper, (d) Postmaster, and (e) Chaplain of the House for the 
Sixty-sixth Congress.
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  \1\ This chapter has no analogy with any previous chapter.
  \2\ First session Sixty-fifth Congress, Caucus Journal, March 31, 
1917.
  \3\ First session Sixty-sixth Congress, Caucus Journal, May 17, 1919.
Sec. 3604
  5. Selection of minority members of the Ways and Means Committee for 
the Sixty-sixth Congress, and defining the powers of the Democratic 
Members thereof with respect to recommendations of assignments of 
minority Members to the standing committees of the House.
  6. Selection of persons for the positions in the House assigned to 
the minority.
  7. Election of a Doorkeeper and Sergeant at Arms of the caucus for 
the Sixty-sixth Congress.
  8. Any other matter or matters proper for the consideration of the 
caucus.

  3604. On February 27, 1919,\1\ at the organization of the majority 
conference for the Sixty-seventh Congress, Mr. John Q. Tilson, of 
Connecticut, offered a resolution, which was agreed to as follows:

  Resolved, That the following shall be the order of business and rules 
of procedure governing this conference:
  1. Appointment of three tally clerks.
  2. Nomination of Speaker of the House, Sixty-sixth Congress.
  3. Notification of nominee for Speaker and presentation to the 
conference.
  4. Nomination of Clerk of the House, Sixty-sixth Congress.
  5. Nomination of Sergeant at Arms of the House, Sixty-sixth Congress.
  6. Nomination of Doorkeeper of the House, Sixty-sixth Congress.
  7. Nomination of Postmaster of the House, Sixty-sixth Congress.
  8. Nomination of Chaplain of the House, Sixty-sixth Congress.
  9. Selection of committee on committees and defining its duties.
  10. Selection of Committee on revision of rules.
  11. The transaction of such other business as may properly come 
before the conference called for ``organization purposes.''

  3604a. On March 2, 1933,\2\ in the majority caucus, on motion of Mr. 
Clarence Cannon, of Missouri, the following resolution was agreed to:

  Resolved, That the order of business for this session of the Caucus 
shall be as follows:
  1. Election of the Chairman, Secretary, Assistant Secretary, Sergeant 
at Arms, and Doorkeeper of the Caucus for the Seventy-third Congress.
  2. Adoption of the rules of the Caucus for the Seventy-third 
Congress.
  3. Nomination of a candidate for Speaker of the Seventy-third 
Congress.
  4. Election of the Majority Leader for the Seventy-third Congress.
  5. Nomination of candidates for (a) Clerk, (b) Sergeant at Arms, (c) 
Doorkeeper, (d) Postmaster, and (e) Chaplain of the House for the 
Seventy-third Congress.
  6. Authorization of a steering committee and determination of its 
jurisdiction.
  7. Any other business germane to the organization of the Caucus or 
the House.

  3605. The caucus system has been in use for many years and has been 
utilized by both parties.
  Explanation of caucus procedure requiring two-thirds vote to bind 
members and exempting constitutional questions, matters of conscience, 
and pledges to constituents.
  On September 24, 1913,\3\ while the House was considering the bill 
(S. 2727) to create an additional land district in the State of Nevada, 
Mr. Sereno E. Payne, of New York, digressed to discuss the charge that 
a caucus controlled the legislative program of the majority and 
designated the bills to be considered.
-----------------------------------------------------------------------
  \1\ First session Sixty-sixth Congress, Conference Journal, February 
17, 1919.
  \2\ First session Seventy-third Congress, Caucus Journal, March 2, 
1933.
  \3\ First session Sixty-third Congress, Record, p. 5157.
                                                            Sec. 3606
  In reply Mr. Speaker Clark, of Missouri, speaking from the floor, 
said:

  There are a great many new Members in this House, and while this 
continual criticism of the conduct of the majority in this House would 
have no effect whatsoever on the older Members, without regard to 
political affiliations, it might make new Members think that we are 
proceeding in an extraordinary manner; that there is no precedent for 
caucus action.
  Every student of government knows that in a country whose 
institutions are bottomed on suffrage the government will be a 
government by parties. It matters nothing whether we want it that way 
or not, that is the way it is. The history of England and of the United 
States prove that beyond peradventure. Responsibility rests upon the 
majority, and we shrink not from acknowledging our responsibility to 
the country and of acting accordingly.
  Now let us see about caucus rule. We must have organization in order 
to enact the will of the people into law. Do you know how many people 
it takes to hold a caucus? Two can hold a caucus as well as two hundred 
and ninety-odd Democrats.
  In a Democratic caucus it takes two-thirds of all Democrats elect to 
make caucus action binding. it is not binding at all on constitutional 
questions or matters of conscience or where a Member has made promises 
or pledges in his campaign for election. In such cases the rule exempts 
Members from caucus action.
  So far as an open caucus is concerned, the Democratic caucus blazed 
the way to give publicity to caucus action.
  The Democratic Party established the rule in its caucus that every 
resolution should be entered in the journal and the journal should be 
kept open not only to members of the caucus but to the press and 
everybody else interested, so that they can inspect it and see what has 
been done. That journal is kept like the Journal of the House, on the 
same principle, with all matters of legislation embraced on it.
  Every resolution which is offered in the Democratic caucus is entered 
in the journal, is open to inspection, and given to the newspapers if 
they desire to print it.
  The minutes are examined almost every day by Members of the House and 
by newspaper reporters and others who desire to examine them. They are 
open to the public.

  3606. Instance wherein Members failing to abide by the action of 
their party caucus were disciplined by removal from committees or 
reduction in rank.--On March 17, 1910,\1\ Mr. George W. Norris, of 
Nebraska, offered a resolution (H. Res. 502) declaring the Speaker 
ineligible to membership on the Committee on Rules, increasing the 
number of members on the committee, and providing a new method for 
their appointment.
  Mr. John Dalzell, of Pennsylvania, made the point of order that the 
resolution was not privileged. During the ensuing debate, Mr. Augustus 
P. Gardner, of Massachusetts, and Mr. Charles N. Fowler, of New Jersey, 
stated that they had been removed from committees. Mr. Victor Murdock, 
of Kansas, and Mr. Henry A. Cooper, of Wisconsin, added that they had 
been arbitrarily reduced in rank on committees to which they had been 
assigned.
  Mr. Speaker Cannon, of Illinois, having relinquished the gavel, 
addressed the House from the floor and said:

  The gentleman from New Jersey, Mr. Fowler, was chairman of the 
Committee on Banking and Currency when the emergency currency bill was 
pending in that committee. The only way to consider that bill in the 
House was to have that committee make a favorable or an unfavorable 
report upon it.
  The gentleman will recall that the Republican side of the House held 
two caucuses, and the caucus by a large majority expressed its wish 
that the Committee on Banking and Currency should
-----------------------------------------------------------------------
  \1\ Second session Sixty-first Congress, Record, p. 3321.
Sec. 3607
report that bill with or without favorable recommendation, so as to 
enable the House to work its will upon it by a majority. That 
committee, under the leadership of the gentleman from New Jersey, a 
Republican chairman, refused to respect the will of the Republican 
caucus. That made a foundation upon which the Speaker of the House 
could recognize a Member to move to suspend the rules and discharge the 
committee from the consideration of the bill and thus bring it before 
the House, which was done, and a majority of the House did work its 
will upon that bill.
  Subsequently the gentleman from New Jersey; the gentleman from 
Wisconsin, Mr. Cooper; the gentleman from Kansas, Mr. Murdock; and the 
gentleman from Nebraska, Mr. Norris, failed to enter and abide by a 
Republican caucus, and this being a Government through parties, for 
that, as well as for other sufficient reasons, the Speaker of the 
House, responsible to the House and to the country, made the 
appointments with respect to these gentlemen as he conceived it to be 
his duty in the execution of the trust reposed in him.

  3607. A discussion of the organization and functions of the party 
caucus.--On May 11, 1928, \1\ Mr. Guy U. Hardy, of Colorado, in the 
course of remarks inserted in the Record under leave to print, 
discussed the organization and functions of the party caucus, as 
follows:

  In the general readjustment in party affairs back in 1910 and 1912 
the Republicans gave up the caucus altogether and held meetings of 
party members under the name of Republican conferences. But in recent 
years they have gone back again to the old name of Republican caucus. 
\2\
  At the beginning of a new Congress each two years party caucuses are 
called together to select candidates for Speaker. If there are two or 
more candidates for Speaker, the matter is threshed out here. After the 
caucus votes all party members support the man who receives the 
majority vote in the caucus.
  The Republican caucus voted in 1919 to give the speakership to 
Frederick H. Gillett over his opponent, James R. Mann. In 1925 it 
selected Nicholas Longworth over his opponent, Martin B. Madden. In the 
former case the Republicans were just coming into control of the House. 
In the latter case Speaker Gillett had left the House on being elected 
to the United States Senate.
  The majority caucus also names the various important employees of the 
House, such as Clerk, Sergeant at Arms, Doorkeeper, Postmaster, and 
others. Each caucus also selects its party leader and the whip.
  Democrats are subject to be bound by the decision of the Democratic 
caucus. It requires a two-thirds vote, however, to bind the membership 
on matters of legislation and a member may arise and ask to be relieved 
of caucus instruction in specific cases.

  3608. Proceedings of the Democratic caucus are recorded in its 
journal, which is open to inspection by the public.
  On April 17, 1913, \3\ pending a motion for adjournment, and in 
response to an inquiry from Mr. Victor Murdock, of Kansas, Mr. Oscar W. 
Underwood, of Alabama, said:

  The Democratic caucus was the first to give publicity to caucus 
action. The Democratic Party established the rule in its caucus that 
every resolution should be entered in the journal and the jornal should 
be kept open, not only to members of the caucus, but to the press and 
everybody else interested. The caucus journal is kept like the journal 
of the House, with all matters of legislation embraced in it, and 
anyone can inspect it and see what has been done.

  3609. The formal rules of party caucus with statement of party 
principles.--On September 13, 1913, \4\ the Committee of the Whole 
House on the state of the Union was considering the bill H. R. 7837, 
the currency bill.
-----------------------------------------------------------------------
  \1\ First session Seventieth Congress, Record, p. 8440.
  \2\ The formal title of ``Conference'' is still in use.
  \3\ First session Sixty-third Congress, Record, p. 224.
  \4\ First session Sixty-third Congress, Record, p. 4903.
                                                            Sec. 3610
  During general debate on the bill, Mr. Charles H. Dillon, of South 
Dakota, in discussing the attitude of the caucus of the majority party 
toward the pending legislation, included as a part of his remarks the 
following:

                        Democratic Caucus Rules.
                               preamble.
  In adopting the following rules for the Democratic caucus we affirm 
and declare that the following cardinal principles should control 
Democratic action:
  (a) In essentials of Democratic principles and doctrine, unity.
  (b) In nonessentials, and in all things not involving fidelity to 
party principles, entire individual independence.
  (c) Party alignment only upon matters of party faith or party policy.
  (d) Friendly conference and, whenever reasonably possible, party 
cooperation.

                                 rules.
  1. All Democratic Members of the House of Representatives shall be 
prima facie members of the Democratic caucus.
  2. Any member of the Democratic caucus of the House of 
Representatives failing to abide by the rules governing the same shall 
thereby automatically cease to be a member of the caucus.
  3. Meetings of the Democratic caucus may be called by the chairman 
upon his own motion, and shall be called by him whenever requested in 
writing by 25 members of the caucus.
  4. A quorum of the caucus shall consist of a majority of the 
Democratic Members of the House.
  5. General parliamentary law, with such special rules as may be 
adopted, shall govern the meetings of the caucus.
  6. In the election of officers and in the nomination of candidates 
for office in the House, a majority of those present and voting shall 
bind the membership of the caucus.
  7. In deciding upon action in the House involving party policy or 
principle, a two-thirds vote of those present and voting at a caucus: 
meeting shall bind all members of the caucus: Provided, That said two-
thirds vote is a majority of the full Democratic membership of the 
House: And provided further, That no Member shall be bound upon 
questions involving a construction of the Constitution of the United 
States or upon which he has made contrary pledges to his constituents 
prior to his election or received contrary instructions by resolution 
or platform from his nominating authority.
  8. Whenever any member of the caucus shall determine, by reason of 
either of the exceptions provided for in the above paragraph, not to be 
bound by the action of the caucus on these questions, it shall be his 
duty, if present, so to advise the caucus before the adjournment of the 
meetings, or, if not present at the meeting, to promptly notify the 
Democratic leader in writing, so that the party may be advised before 
the matter comes to issue upon the floor of the House.
  9. That the 5-minute rule that governs the House of Representatives 
shall govern debate in the Democratic caucus unless suspended by a vote 
of the caucus.
  10. No persons except Democratic Members of the House of 
Representatives, a caucus journal clerk, and other necessary employees 
shall be admitted to the meetings of the caucus.
  11. The caucus shall keep a journal of its proceedings, which shall 
be published after each meeting, and the yeas and nays on any question 
shall, at the desire of one-fifth of those present, be entered on the 
journal.

  3610. On February 27, 1919,\1\ in adopting an order of business, the 
majority conference agreed to this resolution providing for conference 
rules:
-----------------------------------------------------------------------
  \1\ First session Sixty-sixth Congress, Conference Journal, February 
17, 1919.
Sec. 3611

                          rules of procedure.
  1. That so far as applicable and except as herein modified, the rules 
of the Sixty-fifth Congress be adopted as the rules for this 
conference.
  2. That two hours be allowed for nominating speeches for the 
candidates for Speaker, the time to be equally divided between the 
spokesmen for the respective candidates for said office.
  3. That nominating speeches for other offices be limited to one 
speech of five minutes for each candidate.
  4. That all other speeches be limited to five minutes.
  5. That upon the expiration of the one hour allowed for nominating 
speeches for Speaker, the roll shall be called, and the person 
receiving a majority of the votes of the Members elect of the Sixty-
sixth Congress who are present and voting shall be the Republican 
nominee for Speaker of the House for the Sixty-sixth Congress.
  6. The vote on nomination for all other offices shall be by 
acclamation, or by a rising vote, or upon the demand of one-fifth of 
the members present the roll shall be called, and the candidate 
receiving a majority of the votes cast for any of the offices 
enumerated in the foregoing order of business shall be the Republican 
nominee for such office. The chairman, in behalf of the conference 
shall present to the House of Representatives the nominees selected by 
the conference.

  3611. Under the recent practice the selection of floor leaders is 
announced in the House.
  On April 15, 1929,\1\ the first day of the session, the Speaker 
having been elected and having taken the oath of office, Mr. Willis C. 
Hawley, of Oregon, chairman of the majority caucus, addressed the Chair 
and said:

  Mr. Speaker, the Republican caucus of the House has reelected Hon. 
John Q. Tilson, of Connecticut, majority leader for the Seventy-first 
Congress.

  Mr. David H. Kincheloe, of Kentucky, announced:

  Mr. Speaker, as chairman of the Democratic caucus, I announce that 
the caucus has selected Hon. John N. Garner, of Texas, as minority 
leader for the Seventy-first Congress.

  Apparently this was the first occasion of the official announcement 
of the selection of party leaders in the House.
  3612. On December 7, 1931,\2\ on the first day of the session, 
following the election of the Speaker, Mr. William W. Arnold, of 
Illinois, chairman of the majority caucus in the Seventy-second 
Congress, addressed the Chair and said:

  Mr. Speaker, the caucus of the Democratic Members of the House has 
selected Hon. Henry T. Rainey, of Illinois, as majority leader for the 
Seventy-second Congress.

  3613. On March 9, 1933,\3\ at the organization of the House, Mr. 
Clarence F. Lea, of California, chairman of the majority caucus, 
announced:

  Mr. Speaker, as chairman of the Democratic caucus, I desire to 
announce to the House that at the recent meeting of the caucus, Hon. 
Joseph W. Byrns, of Tennessee, was selected majority floor leader for 
the Seventy-third Congress.

  Thereupon, Mr. Robert Luce, of Massachusetts, announced:

  Mr. Speaker, as chairman of the Republican conference, I wish to 
announce that the conference has selected Hon. Bertrand H. Snell, of 
New York, as minority leader for the Seventy-third Congress.
-----------------------------------------------------------------------
  \1\ First session Seventy-first Congress, Record, p. 25.
  \2\ First session Seventy-second Congress, Record, p. 9.
  \3\ First session Seventy-third Congress, Record, p. 75.
                                                            Sec. 3614
  3614. A discussion of the functions and duties of the majority and 
minority floor leaders.
  The rules contain no provision relating to the selection or duties of 
the party floor leaders, who are chosen by the caucus or conference of 
their respective parties.
  On May 11, 1928,\1\ Mr. Guy U. Hardy, of Colorado, in the course of 
remarks inserted in the Record, said:

  The floor leader, especially the leader of the majority side, has 
much to do with the legislative program. The majority leader, of 
course, represents the majority on the floor. Motions he makes are 
usually passed. He endeavors to represent the majority view and the 
majority follow his leadership. He leads in debate on administration 
matters and gives the House and the country the viewpoint of his party 
on the legislative program.
  The leader keeps in touch with proposed legislation, the status of 
bills of importance, with the steering committee of which he is 
chairman, and with the attitude of the Rules Committee. He confers with 
committee chairmen and Members in general. The majority leader often 
confers with the President and advises with him regarding 
administrative measures. He takes to the President the sentiment of the 
party in the House and he brings to the party in the House the 
sentiment of the President. The majority leader acts also as chairman 
of the committee on committees and of the steering committee. The 
majority leader at this time is John Q. Tilson of Connecticut. Other 
Republican floor leaders who have preceded Mr. Tilson are Nicholas 
Longworth, Frank Mondell, James R. Mann, Joseph G. Cannon, Thomas B. 
Reed, Nelson Dingley, William McKinley, and Sereno Payne.
  The minority leader is Finis J. Garrett, of Tennessee. Other notable 
floor leaders on the Democratic side have been Champ Clark, Claude 
Kitchin, Oscar Underwood, and Samuel J. Randall.

  3615. A discussion of the duties and methods of selection of the 
party whips.--Mr. Hardy also discussed \2\ the duties and personnel of 
the majority and minority whips and the methods of their selection, as 
follows:

  The office of whip comes to us from the British Parliament where the 
name has been used for some two hundred years. It is probable that 
every legislative body, as long as there have been such bodies, has had 
some person who has acted in this capacity.
  The whip looks after the membership of his party and endeavors to 
have them present to vote on important measures. When the vote is 
close, he finds who is out of the city, and advises absentees by wire 
of important measures coming up.
  There are hours of long debate when many Members do not feel it 
necessary to be present. The whip keeps informed on the daily program, 
and notifies the membership of his party. Occasionally Members' offices 
are notified by phone from the whip's office that ``All Members are 
desired on the floor immediately.''
  The whip has also a duty to perform in connection with the White 
House. The President occasionally seeks information from the whip as to 
the sentiment of the House on important administration measures, about 
the prospect of passage of certain bills, and the whip naturally 
reflects the President's view about many things and is in a position to 
know the administration's policy.
  The Republican whip was formerly appointed by the Speaker, but is now 
chosen by the party caucus. Hon. Albert H. Vestal, of Indiana, is 
serving as Republican whip at this time. Some others who have rendered 
distinguished service as Republican whip have been Thomas B. Reed; 
James Wilson, late Secretary of Agriculture; James W. Watson, now 
United States Senator from Indiana; James A. Tawney; and John W. 
Dwight. On the Democratic side William A. Oldfield, of Arkansas, is the 
party whip.
-----------------------------------------------------------------------
  \1\ First session Seventieth Congress, Record, p. 8439.
  \2\ Ibid.
Sec. 3616
  3616. Members of the Republican committee on committees are selected 
by States and have a voting strength in the committee in proportion to 
the party membership of their respective State delegations in the 
House.
  On February 27, 1919,\1\ in the majority conference, Mr. James R. 
Mann, of Illinois, proposed the following resolution:

  Resolved, That a committee on committees be selected consisting of 
one Member from each State having Republican representation in the 
Sixty-sixth Congress, to be selected by the Republican representation 
from the several States, respectively, and that the voting strength of 
each member of such committee shall be the number of Republican Members 
of the House from his State.

  The resolution was agreed to and is the first appearance of a 
provision for geographical representation on a committee charged with 
the selection of the standing committees of the House.
  3617. On The Democratic members of the Committee on Ways and Means 
serve as the committee on committees for their party in the House.
  Nominations for assignments to the standing committees are made by 
the committee on committees which reports them to the caucus for 
approval and ratification.
  On April 9, 1921,\2\ Mr. James F. Byrnes, of South Carolina, in the 
minority caucus, offered the following resolution which was agreed to:

  Resolved, That the Democratic members of the Ways and Means Committee 
of the Sixty-sixth Congress, who are members of the House of the Sixty-
seventh Congress, be nominated by acclamation as minority members of 
the Ways and Means Committee, and the minority members of the said 
committee shall constitute the committee on committees for the 
minority, with power to nominate for membership on the several standing 
committees of the House, the minority members of the Sixty-seventh 
Congress. That a report of such nominations shall be made to the caucus 
for its approval, rejection or amendment, and such committee shall have 
power to fill vacancies occuring during the Sixty-seventh Congress.

  3618. On December 7, 1931,\3\ at the organization of the House, Mr. 
Edward W. Pou, of North Carolina, offered a resolution providing for 
the adoption of the rules.
  In the course of an informal discussion relating to the proposal, Mr. 
Fiorello H. LaGuardia, of New York, suggested deferring consideration 
of the resolution.
  Whereupon, Mr. Henry T. Rainey, of Illinois, said:

  I may say to the gentleman from New York that we are very anxious to 
elect the Democratic members of the Ways and Means Committee. It is our 
committee on committees, and I hope it can be done by unanimous 
consent.

  3619. Instance wherein the chairman of the committee on committees of 
the majority caucus, by direction of the caucus, proposed changes in 
the rules and the election of members to committees which were agreed 
to by the House.
-----------------------------------------------------------------------
  \1\ First session Sixty-sixth Congress, Conference Journal, February 
17, 1919.
  \2\ Caucus Journal, April 9, 1921.
  \3\ First session Seventy-second Congress, Record, p. 12.
                                                            Sec. 3620
  On January 4, 1932,\1\ Mr. James W. Collier, of Mississippi, serving 
as Chairman of the Ways and Means Committee and ex-officio chairman of 
the committee on committees of the majority party, offered a resolution 
providing for a change in the title of the Committee on the Merchant 
Marine and Fisheries to the Committee on the Merchant Marine, Radio, 
and Fisheries, and the election of majority members to the new 
committee.
  In the course of the ensuing debate, Mr. Collier said:

  This is the unanimous report of the committee on committees.

  Mr. Carl E. Mapes, of Michigan, inquired if he had consulted the 
chairman of the Committee on Interstate and Foreign Commerce, which had 
at one time exercised a mooted jurisdiction over radio legislation.
  Mr. Collier replied in the negative and Mr. Ewin L. Davis, of 
Tennessee, chairman of the former Committee on the Merchant Marine and 
Fisheries, said:

  If the gentleman will permit, I will say that the gentleman from 
Texas was present at the meeting of the caucus at which this change was 
unanimously adopted.

  3620. On December 6, 1920,\2\ Mr. Frank W. Mondell, of Wyoming, being 
recognized, said:

  Mr. Speaker, by instruction of the Committee on Committees I present 
the names of seven Members to be elected by the House as new members of 
the Committee on Appropriations, to be assigned on that committee in 
the order indicated.

  The Clerk read as follows:

  To be members of the Committee on Appropriations:


Martin B. Madden, Illinois.          John Jacob Rogers, Massachusetts.
Daniel R. Anthony, Kansas.           John A. Elston, California.
Sidney Anderson, Minnesota.          S. Wallace Dempsey, New York.
Patrick H. Kelley, Michigan.         ...................................

  To be assigned to the committee in the following order:


 1. James W. Good, Iowa, chairman.   11. Patrick H. Kelley, Michigan.
 2. Charles R. Davis, Minnesota.     12. John Jacob Rogers,
                                      Massachusetts.
 3. Martin B. Madden, Illinois.      13. Edward H. Wason, New Hampshire.
 4. Daniel R. Anthony, Kansas.       14. Walter W. Magee, New York.
 5. William S. Vare, Pennsylvania.   15. George Holden Tinkham,
                                      Massachusetts.
 6. Joseph G. Cannon, Illinois.      16. Burton L. French, Idaho.
 7. C. Bascom Slemp, Virginia.       17. John A. Elston, California.
 8. Sidney Anderson, Minnesota.      18. S. Wallace Dempsey, New York.
 9. William R. Wood, Indiana.        19. Milton W. Shreve, Pennsylvania.
 10. Louis C. Cramton, Michigan.     20. Charles F. Ogden, Kentucky.


  The motion was agreed to.
  On July 21, 1921,\3\ when the Journal had been approved, Mr. Mondell 
asked for recognition and said:

  Mr. Speaker, in accordance with the action of the majority of the 
Committee on Committees, I present the following resolution.
-----------------------------------------------------------------------
  \1\ First session Seventy-second Congress, Record, p. 1222.
  \2\ Third session Sixty-sixth Congress, Record, p. 6.
  \3\ First session Sixty-seventh Congress, Record, p. 4170.
Sec. 3621
  The Clerk read:

  Resolved, That Martin B. Madden, Member of Congress from Illinois, 
be, and he is hereby, elected chairman of the Committee on 
Appropriations of the House of Representatives.

  The resolution was agreed to without debate or division and Mr. 
Madden, the second ranking majority member on the committee, was chosen 
chairman.
  3621. Origin and history of the first elective steering committee in 
the party organization of the House.
  Provision for steering committee to be nominated by the committee on 
committees and elected by the party conference.
  The floor leader is ex-officio chairman of the steering committee.
  On February 27, 1919,\1\ the majority conference, in defining the 
duties of the committee on committees, agreed to a resolution providing 
for the creation of a steering committee in the following terms:

  The duties of the committee on committees shall be:
  1. To select the Republican members of the standing committees of the 
House.
  2. To select a steering committee of five members.
  3. To select a whip, who may appoint assistants.
  4. To select a floor leader, who shall become ex officio chairman of 
the committee on committees and chairman of the steering committee.
  5. To report its action to a Republican conference.

  Provision for the steering committee has been continued through each 
succeeding Congress without change in its duties or the manner of its 
selection, and without other modification except an increase from time 
to time in its membership. It is now composed of nine members in 
addition to the chairman, and with the change in the control of the 
House at the opening of the Seventy-second Congress, was retained as a 
part of the minority organization.
  3622. A majority steering committee was created in the Seventy-third 
Congress consisting of 15 elective Members elected by geographical 
groups sitting separately and voting by zones.
  The Speaker, floor leader, chairman of the caucus, and chairman of 
the Rules Committee are ex officio members of the steering committee.
  The States are grouped by zones for the purpose of providing a 
geographical basis of representation on the steering committee.
  The steering committee is not responsible to the caucus, and the 
election of its members, individually or collectively, is not subject 
to caucus ratification or rejection.
  Members of the steering committee are directly responsible to the 
membership of the zone from which elected and are subject to recall at 
any time.
  The chairman of the steering committee is elected by the committee 
and is ineligible to succeed himself.
  The steering committee meets at the call of the chairman or on the 
call of three members of the committee.
-----------------------------------------------------------------------
  \1\ First session Sixty-sixth Congress, Conference Journal, February 
27, 1919.
                                                            Sec. 3623
  A resolution \1\ of the majority caucus of the Seventy-third Congress 
provided:

  Resolved, That in the Seventy-third Congress a Democratic steering 
committee be created as follows:
  First. The chairman of the Democratic caucus of the Seventy-third 
Congress shall select a committee of 12 Democratic Members of the 
Seventy-third Congress, who shall divide the United States into groups 
of contiguous States, creating not less than 9 nor more than 18 \2\ 
groups, having particular reference to similarity of interest and also 
taking into consideration as far as may be possible Democratic 
representation and population.
  Second. When said grouping shall be completed the Democratic 
membership of each group shall meet in conference and select its own 
member of its own group of the Democratic steering committee.
  Third. Any group may, however, before the end of the session of the 
Seventy-third Congress, recall by a majority vote of the particular 
group, its member of the steering committee and elect another member in 
his stead for that group, and this power shall be continuous.
  Fourth. The Speaker of the House, the majority leader, the chairman 
of the caucus, and the chairman of the Committee on Rules shall be ex 
officio members of the steering committee.
  Fifth. The steering committee shall meet and select its chairman, who 
shall be a member of the steering committee, but no ex officio member 
of the steering committee shall be eligible for the chairmanship of the 
steering committee.
  Sixth. The chairman of the steering committee shall not be eligible 
to succeed himself in that position.
  Seventh. The steering committee shall meet on the call of the 
chairman, but must meet when any three members of the steering 
committee request the chairman to call a meeting of the committee.
  Eighth. The functions of the steering committee shall be that each 
member shall keep in touch with his own particular group and consult 
with them as to important legislation which may be under consideration, 
and the steering committee shall ascertain what support can be obtained 
from the Democratic membership on any proposition of party policy, 
shall iron out difference in the different sections of the United 
States in order that the administration may be advised fully as to the 
position of the Democratic membership in the House on any legislation 
it may propose and shall discharge such other duties which may be from 
time to time assigned to them by the Democratic administration.

  The resolution was adopted without change at the organization of the 
majority caucus for the Seventy-fourth Congress.\3\
  3623. Differences of opinion as to party policies are submitted to 
the steering committee for determination.
  The steering committee frequently holds hearings before reaching a 
decision on questions of policy.
  On January 24, 1920,\4\ the House was considering the diplomatic and 
consular appropriation bill in the Committee of the Whole House on the 
state of the Union.
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  \1\ Caucus Journal, April 12, 1933.
  \2\ The States are grouped in 15 zones, as follows: 1, Maine, New 
Hampshire, Vermont, Massachusetts, Connecticut, Rhode Island; 2, New 
York; 3, Pennsylvania, New Jersey, Delaware; 4, Maryland, Virginia, 
North Carolina; 5, South Carolina, Georgia, Florida; 6, Alabama, 
Mississippi, Louisiana; 7, Arkansas, Tennessee, Kentucky; 8, Ohio, West 
Virginia; 9, Indiana, Michigan; 10, Illinois, Wisconsin; 11, Missouri, 
Iowa, Minnesota; 12, North Dakota, South Dakota, Nebraska, Kansas, 
Oklahoma; 13, Texas; 14, Montana, Idaho, Wyoming, Colorado, Utah, 
Nevada, Arizona, New Mexico; 15, California, Washington, Oregon.
  \3\ First session Seventy-fourth Congress, Caucus Journal, Jan. 2, 
1935.
  \4\ Second session Sixty-sixth Congress, Record, p. 1999.
Sec. 3625
  In response to a reference by Mr. Claude Kitchin, of North Carolina, 
the minority leader, to the majority steering committee, Mr. Frank W. 
Mondell, of Wyoming, the majority leader and ex officio chairman of the 
steering committee, explained:

  We have a steering committee. The chairman of the various committees 
of the House, after having given careful consideration to the matters 
that come before their committees, very frequently say to the Speaker 
or to the chairman of the steering committee, or some member of it, 
``We have some matters with regard to which there is some difference of 
opinion as to the proper policy to follow. We are trying to carry out a 
policy of economy. We want to provide properly for the public service, 
but we want to cut out all unnecessary appropriations, and the members 
of our committee would like to take up with the steering committee and 
with the Speaker, and with such other members as you see fit to invite 
in, the general questions of policy before our committee.'' We 
frequently have conferences thus suggested. We have done that with 
regard to every appropriation bill that has been presented to the House 
thus far. That policy will be followed with regard to other 
appropriation bills, not doubt. The conference not only takes in the 
members of the committee having the matter in charge, the members of 
the steering committee, and the Speaker but generally chairmen or 
members of other committees interested in the carrying out of the 
general policy and having to do with legislative and appropriation 
matters somewhat akin to those under consideration. And after full 
consideration we have always reached a unanimous agreement. It is not a 
matter of a showing of hands with the idea of finding out whether there 
is a preponderance of opinion on one side or the other; but after all 
have discussed the matter, frequently, not once but a number of times, 
there is eventually a unanimous agreement.
  We keep at it until there is a unanimous agreement as to the general 
policy that ought to be followed. That is what we ought to have had 
here years ago. It is the best way to legislate and appropriate--that 
is, to bring the membership of the House together frequently in groups, 
first one and then another; bringing in those who desire to be heard, 
those who are particularly interested in the matter before us, those 
who have a special responsibility with regard to the general policy of 
the party, and finally coming to an agreement as to what we shall do. 
The steering committee has never told any committee what is should do, 
what it could do, or what it could not do, and has no thought of doing 
anything of the sort. But I am thankful that out of this policy of 
cooperation and coordination and constant and frequent conference we 
are able to secure an agreement as to what should be done.

  3625. The majority steering committee in the Sixty-fifth and Sixty-
sixth Congresses consisted of five members.
  The steering committee was nominated by the majority committee on 
committees and elected by the party conference.
  The membership of the steering committee is subject to recall 
whenever the conference determines it is not representative of party 
sentiment in the House.
  The leader serves as chairman of the steering committee which meets 
on call.
  On April 27, 1920,\1\ during consideration of the soldiers' 
compensation bill in the House, Mr. Nicholas Longworth, of Ohio, 
replying to an inquiry as to the functions of the steering committee 
addressed to the House generally by Mr. Henry T. Rainey, of Illinois, 
earlier in the debate, said:

  A word about the steering committee. I am, as the gentleman from 
Illinois has said, a member of it. I am also a member of the Committee 
on Ways and Means, which is drafting this soldiers' legislation, and a 
member of the committee on committees, which created them both. I
-----------------------------------------------------------------------
  \1\ Second session Sixty-sixth Congress, Record, p. 6177.
                                                            Sec. 3626
ought to be competent, therefore, to know just what the steering 
committee has had to do with the taxation and any other features of 
this bill.
  Now, first let me correct the misapprehension that the steering 
committee is a boss on this side of the House. On the contrary, we are 
the mere legislative agents and servants of the majority. We were 
elected unanimously, and we can be removed tomorrow if we fail to be 
representative of the mind of the majority. That we are still here is 
proof of the fact that, so far at least, we have done fairly well in 
crystallizing the thought of the majority into legislation.
  I will candidly admit, that I had some doubt when the steering 
committee was first formed as to whether it was sufficiently 
representative. When it came time to organize this House I made just as 
hard a fight as I knew how upon two propositions: First, to enlarge the 
steering committee; and, second, to modify in some respects the 
seniority rule.
  My thought in regard to the steering committee was that it should 
consist of nine rather than of five members, so that it might be more 
representative, geographically, and in cleavage of thought, of the body 
of the majority. The majority of the conference, however, thought that 
inasmuch as the committee was apt to be called together at any time, 
practically, of the day or night, a committee of nine would be 
unwieldy, and they defeated our proposal, so that the committee was 
left at five.

  3626. The majority steering committee in the Seventieth Congress.
  On May 11, 1928,\1\ Mr. Guy U. Hardy, of Colorado, in the course of a 
speech inserted in the Record under leave to extend remarks, included 
the following:

  An influential factor in government is the steering committee. It 
exerts a powerful influence but makes no effort to exhibit power. It 
works along diplomatic lines to feel out and consolidate sentiment for 
administration measures and procedure. It meets at the call of the 
chairman, and considers the welfare of the Government from the party 
point of view. It advises with the White House, the chairmen of 
important committees, the party leaders, and the Rules Committee. It 
helps to iron out differences, and to formulate the majority program in 
the House. The chairman of the Steering Committee is the floor leader. 
When the committee meets the Speaker sometimes and the chairman of the 
Rules Committee usually are invited in for consultation. Other members 
of the committee are:
  George P. Darrow, Pennsylvania; Edward E. Denison, Illinois; Nicholas 
J. Sinnott, Oregon; Allen T. Treadway, Massachusetts; Walter H. Newton, 
Minnesota; Homer Hoch, Kansas; Frederick R. Lehlbach, New Jersey; S. 
Wallace Dempsey, New York; Royal C. Johnson, South Dakota.

  3627. The patronage of the House is distributed through a patronage 
committee nominated by the committee on committees and elected by the 
majority caucus.
  Chairmen of committees control the patronage of their respective 
committees and do not participate in the general distribution.
  The patronage of the House, exclusive of the committee assignments, 
is divided as equitably as may be among the majority Members exclusive 
of chairmen, the amount assigned to the individual Member varying with 
the size of the party majority.
  Employees designated for appointment shall be competent, and are 
subject to removal by the committee for cause, or by the Members 
appointing them, at will.
-----------------------------------------------------------------------
  \1\First session Seventieth Congress, Record, p. 8439.
Sec. 3628
  On May 9, 1911,\1\ Mr. John C. Floyd, of Arkansas, from the Committee 
on Accounts, by direction of that committee, presented a report \2\ on 
a resolution vacating offices and employments in the service of the 
House, and quoting the following sections from a resolution adopted by 
the majority caucus for the Sixty-second Congress:

  Sec. 3. That the Democratic members of the Committee on Ways and 
Means be, and they are hereby, instructed to nominate to the caucus for 
its action a committee of three members, to be known as the Committee 
on Organization, who shall have charge of the proper distribution of 
all of the appointive places in the House organization as provided 
herein, except the cloakroom men and such other places as are by law or 
resolution to be filled by the minority. And that said committee shall 
distribute said appointive places amongst the members of the various 
State delegations, exclusive of committee chairmen having patronage as 
under section 4, giving to each State the proportion in number of 
places and aggregate salaries thereof, as nearly as may be done, which 
its Democratic delegation bears to the entire Democratic membership of 
the House, excluding such chairmen, leaving to the individual members 
of the several State delegations or the several State delegations the 
nomination of persons to the places to which such State shall be so 
entitled; Provided that each member from a State shall receive, so far 
as practicable, a fair and equal proportion of the patronage to which 
his State is entitled; and said committee to have entire charge of the 
adjustment of such appointive places after the nominations have been 
made to said committee by the various State delegations; and the 
several elective officers of the House shall appoint only such persons 
to fill the various appointive offices as shall have been named by the 
said Committee on Organization, provided that the elective officers 
shall not be charged to any Member or delegation.
  Sec. 4. That in the distribution of patronage, the clerk, assistant 
clerk, janitor, messenger, or other employees of each standing 
committee shall be charged to the chairman of the committee, who shall 
have the right to appoint the same by and with the approval of his 
committee; and that such chairman shall receive no other patronage 
until every other member shall have been given the opportunity to name 
the occupants of positions, whose salaries shall equal those of the 
persons so appointed by the respective committee chairmen.

  3628. On March 19, 1918, preceding the opening of the Sixty-sixth 
Congress, the following letter was dispatched to majority Members 
elect:

  Dear Sir: The Members nominated by the committee on committees, under 
the instructions of the Republican conference of February 27, as the 
Republican steering committee, were instructed by the committee on 
committees to consider the question of patronage with a view to its 
equitable distribution, having especial regard for efficiency and the 
proper conduct of the business of the House.
  The steering committee will recommend that the general patronage of 
the House, after eliminating that of committees, certain positions in 
which the incumbents' past services seem to warrant their retention and 
positions not heretofore deemed to be a part of the general patronage, 
be distributed through and by State delegations whose members are not 
chairman of committees, upon the basis of about $1,800 per Member.
  The steering committee finds that 266 positions will be available, 
the aggregate salaries of which amount to $330,000, to be apportioned 
among 179 Members through their respective State delegations. 
Accordingly, for instance, your State will be entitled to patronage 
amounting to $------, distributed among ------ Members who are chairmen 
of committees.
  It is suggested by the steering committee that, in order to be in 
readiness to assume control of the House and be prepared for the prompt 
dispatch of business when an extra session shall be called, Members 
entitled to patronage confer as early as possible with their colleagues 
upon the subject in order that delegations may be prepared to submit 
their recommendations before or at
-----------------------------------------------------------------------
  \1\ First session Sixty-second Congress, Record, p. 1148.
  \2\ House Report No. 25.
                                                            Sec. 3629
the time of the assembling of Congress. All letters of inquiry and 
recommendations agreed upon should be addressed to Wm. Tyler Page, 
Republican nominee for Clerk of the House, House of Representatives, 
Washington, D.C.
  For your information there is inclosed a statement showing the 
offices or positions in the House of Representatives and their 
statutory salaries, to which the plan above mentioned applies.
  In addition to such salaries the law, effective July 1st next, 
provides a bonus of $240 for the next fiscal year. This bonus, however, 
is not included in the committee's basic computation of $1,800 per 
Member.
  Inviting your earliest possible consideration of this important 
matter,
    Very truly yours,

                                                F. W. Mondell,    
                      Temporary Chairman, Committee on Committees.

  3629. On December 15, 1931, following the change in the control of 
the House in the Seventy-second Congress, majority Members received the 
following:

  Dear Colleague: The patronage committee has assigned to you your 
quota of patronage with the following conditions:
  First. That those selected by you shall be placed on the pay roll on 
either the 15th or the 1st of the month.
  Second. That any person assigned to you may be removed by you at any 
time you see fit.
  Third. That the committee reserves the right to remove any person for 
incompetency or misconduct.
  Fourth. Should you be assigned more than your quota, the committee 
reserves the right to reduce this amount, but hopes that it will not be 
necessary to do so.
  Fifth. Patronage is assigned for the Seventy-second Congress only. If 
the Democratic majority is increased at the next election it will 
probably be necessary to rearrange assignments so as to take care of 
the new Members.
  Your quota is as follows: ------.
  When you so desire, please give me the name of the person or persons 
you wish to have placed on the pay roll in writing. The committee 
desires to express appreciation for the splendid spirit of cooperation 
that has been manifested by the Members. We have done the best that we 
could to satisfy every person, and hope that these assignments will be 
satisfactory.
    Very sincerely,

                                     James V. McClintic, Chairman.