WikiLeaks Document Release http://wikileaks.org/wiki/CRS-RL30666 February 2, 2009

Congressional Research Service Report RL30666 The Role of the House Minority Leader: An Overview Walter J. Oleszek, Government and Finance Division

December 12, 2006

Abstract. The House minority leader is head of the loyal opposition. His party’s nominee for Speaker, the minority leader is elected every two years by secret ballot of his party caucus or conference. The minority leader’s responsibilities involve an array of duties. Fundamentally, his primary goal is to recapture majority control of the House. In addition, he performs important institutional and party functions. http://wikileaks.org/wiki/CRS-RL30666 The RoleoftheHouseMinority Leader: Senior Specialist in theLegislative Process Government andFinance Division Updated December 12,2006 AnOverview Walter J.Oleszek Walter Order Code RL30666 http://wikileaks.org/wiki/CRS-RL30666 political success. strives to promote party harmony so as theto maximize chances forlegislative and Administration’s agenda, and political events generally. Fifth, the minority leader regularly withthePresidentandhis ai Fourth, theminority leader,ifhisorher Third, the minority leader workstopr minority leader may be able tolaunch a party objectives. For example, by stalling action onthe majority party’s agenda, the with instructions;RuleII, clause6,stat designee)granthis (or the the minority right toofferleader a motiontorecommit specific responsibilitiestotheminority leader performs important institutional and party functions. is torecapturemajority controlofth Summary leader devises strategies, in strategies, in devises leader campaignincumbents assistancetoparty party activities direct the workofthe minority leader. orshe provideshe First, assignments, all geared toward retaking majorityFive principal House. the control of entities. institutionalduties,suchasa other has may Theminorityleader, Calendar. also leader Corrections onthe legislation place Rule the XV,clause minority 6,provides that the Speaker,with after consultation by jointrecommendation ofthe Speaker, ma arrayan involve ofduties. of hisorherpartyconferen caucusor every elected minority is the leader for Speaker, nominee two years by secret ballot From an institutional perspective, oftherules House theassign a number of From aparty perspective,theminority leaderisheadof The Houseminority House Minority Leader Fundamentally, theprimary consultation withotherpartis e House. In addition,theminority leader e House. es the Inspector General shall beappointed shall es theInspector General campaign against a “do-nothing Congress.” ce. Theminority leader’sresponsibilities omote and publicize the party’s agenda. theparty’somote andpublicize party controls the White House,confers the White party controls ppointing individuals tocertainfederal des about issuesbeforeCongress, the des about andchallengers. Second,theminority the“loyal opposition.”Theparty’s jority leader, and minority and leader; leader has a wide range ofpartisan wide a has leader . For example, RuleXII,. For example, clause 6, an colleagues, that advance an that colleagues, goal oftheminority leader http://wikileaks.org/wiki/CRS-RL30666 Appendix. HouseMinorityAppendix. Leaders, 1899-2006 Concluding Observations...... 11 Party Functions ...... 6 Institutional Functions Origin of theIntroduction Minority Leader’sContents Post ...... 2 FosterConfer PartyPromote With HarmonyDevise the ...... 10 and WhiteProvide Publicize Minority House Campaign ...... 9 Party the Party’sMotion toRecommit withInstructions Strategies Assistance AgendaPermanent Select Committee onIntelligence ...... 7 ...... 7 ...... 8 Committee onStandardsofOffi OversightQuestionsInspector Plans ...... 5 Drug of Privilege Testing General ...... 5 ...... 5 ...... 5 ...... 5 ...... 1 Subcommittees ...... 4 ...... 5 cial Conduct:Investigative ...... 12 ...... 6 ...... 5 http://wikileaks.org/wiki/CRS-RL30666 minority leaderthrough the107 leader in1973after20years ofHouse serv Michel’s predecessor,RepublicanJohn Michel, R-IL, leaderin whobecameGOP elections. Gephardt’spredecessorinth 1989untilRepublicanscapturedcontro June years, hadbeena1988presidentialcandida N.Y., provided this“jobdescription”:“He custom. Aminority leaderfrom1931to minority by aredefined leader and the tradition of functions the a large extent, 20years,House foralmost hadservedasch 104 minority the D-MO,became in leader Gephardt, served as minority107 whipinthe will beheeded is It is his function and dutyfunction Ithis is tocriticize constructively the policies and programs ofthe its policies. He is required tobe alert and vigilant indefense ofthe minority’s rights. 108 the in leader D-CA, becameminority they Nancy winelectiontothisposition.When Pelosi, caucus or conference.These party leader majority House. recapture minority ofthe to control is leader 1 to beheard.” majority shouldbeallowedtowork its w when hispartymajority, wasinthe “ope institution noted formajorityThe House, said a Democraticrule. leader at a time confronts theminority leader:thesubordi straight party-line vote. The speakership election spotlights the main problem that nearly alwaysis ona who elected Speaker-elect, the gaveltraditionally to handsthe minorityleader the Congress, ofanew start the at party’s forSpeaker The nominee

Congressional Record The RoleoftheHouseMinorityLeader: The rolesandresponsibilitiesoftheminor The everyminority elected is leader years two by or ofhis her ballot party secret The minority leaderofthemodernHous 1 Minority they party whether beheard,but to arecertain lawmakers th Congress, she hadservedintheHousenearlyshe 20years andhad Congress, sometimes another matter. Thus, the , Sept.16,1982, p.H7097. An Overview Introduction th Congress. th Congress. When herpredecessor,Richard Congress. When ill while protecting the rights of the minority ill whileprotectingthe therights of s aretypically when lawmakers experienced e minority leadership positionwasRobert leadership e minority rates undertheprinciplethatadetermined Rhodes of Arizona, was elected minority waselected Rhodes ofArizona, 1981 afterspending 24years inthe House. 1939,RepresentativeBertrand Snell,R- airman of the Democratic Caucus forfour Caucus Democratic the of airman is spokesman forhis is ice. RepresentativeGephardtservedas te, and had been majority had leader and from te, nate statusofhisorherparty inan e istheheadof“loyalopposition.” l of the House intheNovember1994 House the l of ity leader are not well-defined. To well-defined. ity leaderarenot th House,hehadbeeninthe uppermost goal ofany party andenunciates http://wikileaks.org/wiki/CRS-RL30666 policies. led theoppositiontoTreasur he Congress First “minority the becausein first leader” informally asthe functioned Virginia of of “oppositionleader.” Some beginningdays ofCongress, various House membersintermittently role theassumed titles forthoseofficial whowere itsofficial leaders.Hill with However, fromthe before anything likeourmoderntwo-part alwaysevident whofunctionedasth not Prior tothistime congressional parties wererelatively often disorganized, soitwas Capitol Hill: party absenceofformal on onthe leadership perspective this offered House the the historicalorigin ofthisposition. the institutional and party assignments ofthe minorityis worth highlightingleader,it arrayinstitutiona These dutiesinvolvean of proposed legislation.” majority,end employthis to and parliamentary tactics and give close attention toall 5 4 3 2 fourteen speakershipelectionsfrom1834 th might haveinformally functi whowerealready cause.” men same the in partisans apartyrepresent adistinct comprising Federalist minoritythe recounts that of (Federalists andRepublicans)hadan offici Brace, 1966),pp.135-136. Representatives,” 1941), p.346. Ibid., p.137. Young,Sterling James House of SeeGarrisonStates Nelson, “LeadershipPosition-Holding intheUnited QuotedinFloyd M.Riddick, Since Snell’sdescription, Since Internalparty disunitydi compounded the completely desultory, disjointed. themselves, actual ortacit,thatnothing without concertamongopposition questions;butallthissoobviously members dotake charge ofadministra England, Leaders,oneithersideof in Iabsolutely foundtherewere nopersonshol During thisearly itwasmore period, a20 is position leader’s minority the To alarge extent, 3 Origin oftheMinority Leader’sPost Capitol Studies 2

The Washington Community,1800-1828 Congressional Procedure oned as a minority “sevenof Forinstance, the leader. scholarssuggestRe that , Fall1976,p.17. other responsibilitieshave 5 CRS-2 36Membersneededacommitteeof13“to minority” and “to coordinatetheactionsof minority”and e opposition floor leader. Decadeswentby ycongressional system emergedCapitol on can be conceivedbe lesssystematiccan ormore y Secretary Alexa tion questions, and certain others of tion questions,andcertainothers al leader.In 1813,forinstance,ascholar the House....It istrue,thatcertain l andparty functions.Before examining usual thatneithermajorparty grouping rough 1859 had at least twentyleast roughdifferent 1859hadat ding thestationsofwhatarecalled, fficulty ofidentifying lawmakerswho 4 In 1828,aforeign observerof (Boston: Chapman andGrimes, (Boston: presentative James Madison presentative James been addedtothejob. nder Hamilton’sfiscal th (New York: Harcourt century innovation. http://wikileaks.org/wiki/CRS-RL30666 McKay Co.,1963),p.70. Brookings Institution, 1967),p.28n. 18. The defeatedcandidateswerenotauto seven Congresses andnominatedno these of two in forSpeaker acandidate “nominate not theycompletely that did disorganized mantle of“minority leader.”TheDe lawmakers defeated then assumed oneofthe the that clear all at not is it speakership, remained themostconspic became itsacknowledged leader,andeverafte wa Keifer “[A]lthough in Keifer’sstead. the assumed Speaker, became wholater R-ME, wasdesert he involves thefloorleadership, honor oftheminority nomination.But with disput to this assertionissubject hard to believe that House partisans would place a man in the speakership when in speakership the in aman place would partisans House that believe hard to Garfield of Ohio, in1876, Blaine ofMainein James ex-Speaker minority, a party the forSpeaker series nominated of prominent including lawmakers, ingloriously.”career figure terminated as a national ...allathandsomesalaries.” relatives close jobs to because part in leader was adiscredited previous Congress. the who wasSpeaker Ohio, of Keifer Warren J. speakership forthe nomination ofKentuc Carlisle G. Democrat John 19. candidates inthefield.Thirty-six comp 13 12 11 10 9 8 7 6 some vestige with it ofleadership.” speakership nomination in 1871and1873,”i we 1883. OntheDemocraticside,“there bynominated minority the party hasclearly Minority beenthe Leader.” in1859,and1381855.” one p. 208. (Boston: Houghton Ibid., p.28. RandallB.Ripley, Nelson, “LeadershipPosition-Holding inthe Congressional Record Herbert Bruce Fuller, Neil McNeil, Nelson, “LeadershipPosition-Holding in the DeAlva StanwoodAlexander, Another scholar contends thattheminor scholar Another In the judgment of a political scientis Forge of Democracy: TheHouse ofRepresentatives Democracy: Forge of Party Leaders in theHouse ofRepresentatives Leaders Party Mifflin, 1916),p.131. 9 Clearly, Keiferwasnotthe , Dec.3,1883,pp.4-5. The SpeakersoftheHouse uous memberofhisparty.” 1877, and History and Procedure of the House of Representatives House History andProcedureof the 6 Withsomany candidates competingthe for e. OnDecember3,1883,theHouseelected 1875, formerAppropriationsChairmanJames mocratic minority from 1861 to1875wasso 1861 mocratic minority from 13 CRS-3 1879, and ex-Speaker Keifer in1883.“It is matically lookedtoforleadership.” as hearbitrarilySpeaker “choice handedout Further, when Republicans wereinthe Further,whenRepublicans s theminority’s candidateforSpeaker,Reed eted in 1839, ninety-seven in1849,ninety- ky Republicansplacedin asSpeaker. re seriouscaucusfights fortheminority t, since 1883 “thet, since candidate for Speaker United States House ofRepresentatives,” p. United StatesHouse ofRepresentatives,” p. it came a sting —forwhilethisnaturally ity emerged evenbefore position leader ed by associatesandhis his[partisan] ndicating that the“nominationcarried ndicating man more than onceintheotherfive. (Boston: Little, Brown, and Co.,Brown, 1909), (Boston: Little, r, so long as he served in the House, in served r, solong ashe de facto Republicans’ minorityHe leader. 11 Representative Thomas Reed, Thomas Representative 10 Keifer received “the empty “the received Keifer 12 role ofminority floorleader , (Washington,The D.C.: (New York: David 8 However, 7 http://wikileaks.org/wiki/CRS-RL30666 leadership structure. leadership of the19 safeNonetheless,seems toconclude it that the positionemerged during the latter part asaparty minority emerged whenthe officially period leadership position. Keifer. ex-Speaker to respect with conditions conducive to the establishment conditions conducivetotheestablishment organizations, and...high levels erawas “markedThis by strong partisan attachments, resilient patronage-basedparty would try to recentralize power in his hands if elected Speaker.” elected handsif his trywould powerin recentralize to Cannon,R-ILSpeaker Joseph he was a protégéplus, ofautocratic objecting totheir private billsonthe floor;” R-MA, to Frederick Gillett, R.Mann,R-IL,James whohadbeen minority this leadershipsuccessionpattern.In speakership upon reclaiming majority status Second, Democratshavealwa influences the assignment ofpartisan colleagues tothe Ways and Means Committee. however, he theappoints or minorshe 2001.) American Political ScienceReview eds., Davidson, et.al., him forlegislative guidance.” the majority, andnominatehimforthisofficewhenintheminority, and not look to 18 17 16 15 14 institutional obligations associated withth the legislative agenda. Despite the variability ofthese factors, there are a number of political climatethe controversyandHouse, inthe that issometimes associated with party,minority whetherhisorherparty including personalityand contextual factors, such as the size and cohesion of the and Means.” rankingtheminority member onthe twomostpowerful committees,Ways Rules and Congress (1909-1910),“itwasthecustomto p. 31. RandallStrahan,“Thomas Brackett Reedandth Ibid. Ripley, Charles O. Jones, Polsby, “TheInstitutionalizationNelson of the U.S. See House ofRepresentatives,” In brief, thereisdisagreement among historical analysts as tothe exact time Two otherpointsofhistoricalinterest The styleThe ofany androle byelements, variety influenced minorityof a is leader th Party Leaders intheHouseofRepresentatives century, a period ofstrong party organization and professional politicians. 17 Today, nolongerleader serves the onthese minority committees; The Minority Party in Congress in The MinorityParty 16 Masters oftheHouse (See (See Institutional Functions beSpeaker.Mann“hadangered many Republicansby Appendix 14 (1903-1911), andmany Members“suspectedthathe This was not the case, according to some observers, some case,according to the wasnot This of partyof Congress.” voting in , Sept.1968,pp.144-168. ys minority elevatedtheir floorleadertothe CRS-4 foralisting ofHouseminority leaders,1899- 1919, for instance, Republicans bypassed 1919,forinstance,Republicans (Boulder,Colo.:Wes ity members of the Rules Committee and is position. Many of theseassignments or controls the White House, the general merit briefmention.First, untilthe61 . Republicans havenotalways . followed of amorehighly differentiatedHouse have theminority leaderalso serveas e RiseofPartyRoger Government,” in leader for eight years,eight andelected for leader (Boston: Little,Brown andCo., 1970), , pp.98-99. tview Press,1998),p.36. 15 Plainly, these were Plainly, these 18 st http://wikileaks.org/wiki/CRS-RL30666 to assist him with his ex officito assist himwithhis ex a quorum.” In addition,eachleadermay desi no voteintheselectcommittee and may not Minority Leader shall be officio members ex have shallselectcommittee ofthebut Congress.” subcommitteesinvestigative available of that committeeon toserve during that party who are not members oftheCommittee appoint 10Members,Delega the Speaker or his designee and the Minority Leader or his designee each shall Subcommittees. coordination ofcommittees’ oversight plans. ha recommendations itortheHouseleaders House the oversight plans” ofthe standing along committees withany and the Minority Leader, the Committee onGovernment Reform shall report to the first session ofa Congress,afterconsultation withthe Speaker, the , resolutions. references the minority leader with respect to the divisionoftime fordebate ofthese moti except questions other precedence ofall a question of privilege by theMajority L general. inspector ofthe reports audit House andreceive specified Houseleadersshallbenotifiedof Leader, acting jointly.” leaderminority Thisrule and further other states that the be appointedforaCongress by theSpeak for drug testing intheHouse.” Minority Leader, shall develop through an responsibilities. They includethefollowing: of flooractivities. resources, administrative ope influenceovertheage disproportionate institutional roleoftheminority leader leadershipdiverse functions. Worthemphasis isthat there are limitsonthe — beyond those accorded himorherasaRe ways.To besure,theminorityother in l roles arespelledoutintheHouserule Permanent Select Committee onIntelligence. Permanent SelectCommittee Committee onStandardsofOffi Oversight Plans. ofPrivilege. Questions Inspector General. Drug Testing. and roles hascertain minority leader House,the ofthe rules Under the Rule X, clause 5, stipulates: “Atthebeginning ofaCongress, RuleX,clause5,stipulates: Under Rule I, UnderRule “S clause 9, the UnderRuleX,clause2,not Rule II, “Inspector shall the Rule General that 6,states clause rations, andtheday-to-day tes, orResidentCommissi o duties.(RuleX,clause 11). UnderRuleIX,as clause2,aresolution“offered book. Othershavedevolved upon the position CRS-5 eader is provided with extra staff resources staff extra with provided eader is eader or the Minorityor eader Leader ...shallhave nda, partisan ratios on committees, staff nda, partisanratiosoncommittees, er, the Majority Leader, andtheMinority , becausethemajority party exercises appropriate entity ofthe House a system any financialirregu be countedforpurposesof determining presentative —toassist in carrying out on StandardsofOfficialConducttobe gnate amemberofhisleadership staff ve proposedtoensuretheeffective ons to adjourn.” This rule further rule This adjourn.” ons to cial Conduct: Investigativecial Conduct: peaker, inconsultation withthe later“thanMarch31inthe scheduleandmanagement oners fromhisrespective “The Speaker and “TheSpeaker larity involving the http://wikileaks.org/wiki/CRS-RL30666 of aparty’s floorleader: duties thediverse (1928-1974),summarized Parliamentarian House late the Deschler, Republican rules identify generally comparabletop partytheir functions for leader. nominating party members tothe Committees on Rules and House Administration. serve asconferees”and shall who Members Democratic onall Speaker the to Steering Committee. ofother Examples assignments are making “recommendations Democratic Leadership Council;chairs Democratic Congressional Campaign Committee; names the members ofthe leader maymeetings ofthe Democratic call Caucus. He orshe isa member ofthe with instructions. that prevents the minority leader ora designeeto recommit fromofferingmotion a Rules Committee may not(except incertain specified circumstances) issue a “rule” 19 underDemocraticrulesforthe106 leader. Forexample, Formally, therulesofeachparty specify feasible. agreementsHouse mattersandforges leader maintainstieswithma convene anearlyparty organizational caucu Preservation Commission;andheorshema Building Commission;he orshe isa me adjournment resolutions;heorsheis the per House respect toreconvening the with consulted heorsheis objectors; Calendar serveasPrivate to Members three individuals to certain federal entities;he or she and the majority leader For instance, theminorityis so leader Lewis Deschler, Deschler, Lewis Informally, the minority leader has a wide In addition, the minority leader hasa Inleader addition,theminority toMotion Recommit Instructions. with The minority leaderhasanumberoffo whip organization. members serving onHouse committees, a information isderived inpartfrom the particular of hisparty respecting constantlyinformed astothestatusof withrespecttopromoting or opposing legislation.on thefloor Heiskept party.own Heisinstrumental indevi resisting thoseprograms oftheotherpart instrumental inguidinglegislationfavore roleintheformulation ofpartyis policy andprograms.He influential A party’s floor leader, in conjunction A party’s floorleader,inconjunction Deschler’s PrecedentsoftheUnited StatesHouse ofRepresentatives 19 jority party leaderstolear Party Functions CRS-6 sing andimplementingparty’sstrategy his legislative business andastothesentiment a traditional member of the House Office a traditional memberHouse ofthe legislation underconsideration.Such usual formulationof metimes statutorily authorizedtoappoint thePolicy Committee;andheadsthe or understandings withtheminsofar as certain roles and responsibilities for their for certain rolesandresponsibilities floor leader’s contacts withhisparty’s floor leader’scontacts y thatareconsideredundesirablebyhis d by hisparty through theHouse,orin s or conference.Informally,s theminority number ofotherins rmal andinformalparty responsibilities. nd withthemembers ofthe party’s y, after consultation with the Speaker, the y, with consultation after mber of the United States Capitol States mber ofthe United with other party leaders, plays an leaders, party with other range ofpartyLewis assignments. Under Rule XIII, clause 6, the 6, clause XIII, Rule Under n aboutthescheduleandother th Congress, the minority conditional concurrent titutional functions. (continued...) each name , http://wikileaks.org/wiki/CRS-RL30666 “No DCCCchairman has ever had that kindofsupport.” Congressional Campaign isunhear Committee] [Minority Leader] Gephardt isputting intohelp the DCCC[Democratic financial contributionstotheparty’s cam andtheyparty significant make candidates; colleagues to encourage incumbent groups tobacktheir candidates;they trav congressional and national partythey campaign encourage committees; outside seats the party wouldneed todefend; theycampaign coordinatetheir activitieswith colleagues nottoretireorrunforothero distribute fundstoHousecandidatesofthei assist in recruiting qualified candidates; they establish “leadership PACs” toraise and major aspectofcampaigning that does not aggressive incumben forpartisan campaigners seek to accomplish this primary this goal. accomplish seek to Vol. 1(Washington,Vol. D.C.:U.S.Gove 26, 2000,p.640. Gephardt’s Skills,” that’s what they want me todo.” Richard Gephardt,D-MO.“That’swhat[m Minority said seats,” Leader more andwin elected “I get [my] to want members significantly the leader’s overarching objective: retake majority control ofthe House. party becausethey other These andseveral mention further merit influence roles 21 20 19 typically significance, marginal minority becausethe sosmall. is party inbuilding winning coalitions onthe floor. following: process,arethe lawmaking stages ofthe party, which can vary frombilltoand be used incombination orat different degrees ofparty cohesion.Among thevari opportunities toachievehisor loggerheads, wereat greater minority mayRepublicans with leader the provide during theearly occurred as dissension, cohesion withinthe majority party. For instance, a majority party riven by internal of circumstances, such as the visibility or significance ofthe issue and the degree of to advanceminority party objectives. The with otherparty colleagues, hasarange of (...continued) James A. Barnes andPeter H. Stone, “A Rich Harvest on the Hill,” Guy Gugliotta, “For Minority Leader,AMa Provide Campaign Assistance. Inconsequential Opposition Cooperation Devise MinorityParty Strategies. . The minority partyThe . supportsa The Washington Post her prioritiesthan if thema . The minorityThe . party offers opposition,butitisof 20 rnment Printing Office,1977),pp.211-212. Five activities illustrate howminority leaders CRS-7 , Oct.8,1998,p.A18. ffices so as to hold downthenumberofopen paign committee. “Theamountoftimethat paign el around the countrythe around tospeakonbehalfof el Minority leaders aretypically leaders energetic and Minority strategic optionsthatheorshecanemploy 1900swhenProgressive and“regular” engage they theirattention.For example, options selected depend on a wide range wide options selecteddependona able strategies availabletotheminority y partisan colleagues] want todo,and want y partisancolleagues] The minority leader, inconsultation r party; theyparty; r try topersuadepartisan ts and challengers. There is hardlyand challengers. Thereis any ts tter of Consensus; Inquiry Tests Vote tter ofConsensus; d of,”noted a Democraticlobbyist. nd cooperateswith 21 jority party high exhibited National Journal themajority , Feb. http://wikileaks.org/wiki/CRS-RL30666 leader’s restrictedability tosettheH as wellindependent supporters electoral members House that uniteshisorherown threaten touse, dischargeto try petitions minorityhim toraise priorities. For example, the minority leader may employ, or minority leaderistodevelopan electora offer policy alternatives that appeal to “going negative” carriesrisksandmay not be minority that House.Tobesure,the recognizes the leader of charge in party back campaign Congress” against a“do-nothing action onthe majority party’s agenda, the minority leader may be able tolaunch a callroll votes arefor standard time-consuming parliamentary tactics. By stalling motions toadjourn,appealsofthepresid Quarterly Weekly Report Minority PartyinCongress respect tohispriorities. views and proposals oftheirpresidentandto party, andoffersitsownproposalsassubstitutes. party initiatives,butdoesnotcounterw and attempts toconstruct winning coalitions ontheir behalf. perhaps becauseofintraparty divisions. 24 23 22 floor overtheoppositionofmajority lead attracting majority part If heorsheisabletoattract there remarkedMinoritydelay,” Leader Gephardt. to party. knowhow “We attracting press and media attention toth such asseveral, frustratingare obstruction the majority party’s ability togovern or Thepurposesof be employed might it circumstances. specific why in suggest EthanWallison, “Gephardt PlansPetition Strategy,” Babson,“DemocratsJennifer ofMinority Refine theTactics Party Power,” strategic These optionshave Jones, beenmodifiedfrom toadegree andcome Promote and Publicize the Party’s Agenda.Party’s Promote andPublicizethe Participation Constructive Opposition Partisan Opposition Innovation Withdrawal A lookatoneminority leadership . Theminority developsalte party . The minorityThe . party choosesnottotakeapositiononanissue, . The minority party isinthepositionofhaving toconsiderthe minority . The y supporters,heorshecanforceminorityin , July 15,1995,p.2037. , July 22 . The minority party offersstrongparty oppositiontomajority . Theminority , p.20. . The minorityThe . party opposesinitiativesofthemajority quired 218 signatures on a discharge petitionby discharge a quired 218signatures on ouse’s agenda, there arestillopportunitiesfor agenda, ouse’s broadsegments of CRS-8 ith policy alternativesoftheirown. lly attractiveagenda and bring minority priorities tothe floor. ing officer’s ruling, or numerousrequests ruling,ing officer’s e alleged ineffectiveness ofthe majority strategy —partisanoppositionmay s and swing voters. Despite the minority the s andswing voters.Despite assesstheirmajority andconvinceenough voterstoputhis and that energizes and appeals to core to andappeals energizes and that ership. AsaGOPminority leaderonce a winning strategy ifhisparty failsto rnatives andagendas ofitsown Roll Call Animportant aim ofthe the general public. , May 17,1999,p.1. of ideasandproposals -building rolewith itiatives to the Congressional 23 Dilatory The 24 http://wikileaks.org/wiki/CRS-RL30666 and promoting theparty’s agenda andin Reagan’s 1981 policy successesintheDemo functioned asthe“pointman” R-IL,Michel, Congress. Robert When as and often worktoadvancethegoals President isofthe same party orthe othe ofthe minorityrole Strategically, leaderthe willvary depending onwhether the before Congress, the Administration’s agenda, and political events generally. minoritythe leaderconfersregularly with arguments andproposals. the legislative initiatives of their President. reconciliation bill. Thereareoccasions,of Democrats” tosupport,forinst “Reagan Minority wooing Leader so-called in to measure effectiveness Michel’s small Republicans in theU.S.House p. 379. votes ontheotherside.” said, the challenges heconfrontedareto 27 26 25 Minority Leader Michel. prepared “todebateonthefloor, articles that highlight minority party goals and achievements. They mustalso be they deliveraddressesindiverseforums speechesandclose floor make also leaders to shareideasandinformation, deve areto objectives House. Theoverall counterparts intheSenate— communicating these programs tothe public. to partyformulate teams issue forces or highlight anddistributeparty images andi of party that policy websites their discern establish colleagues to they preferences; one-minute, morning hour,orspecialorder during the beraised might that party craft to they teams” messages “theme create they partysponsor “retreats”todiscuss party’s the publicize agendapriority, oraspecific such careoreducation; as health theyhelp toorganize “townmeetings” suggested press releases or“talking points” forconstituent meetings in their districts; of packets aresent colleagues colleagues “onmessage,” they partisan that insure priorities andtocriticize William F. Connelly, Jr. and John J. Pitney, Jr., Pitney, William J. Jr., F.Connelly, andJohn Jr. Irwin Arieff,“InsideCongress,” Congressional Record Confer With the White House. House minority leaders also hold jointne House minorityalso leaders Minority leadersmay engage innumerous , Sept.12,1989,p.E3000. 25 26 In brief, minority leaders ar the opposition’s.For instance,tokeeptheirparty (Lanham, Maryland: Littlefield Adams, 1994),p. 15. and with the president if theirpartypresident and withthe controlstheWhite Congressional Quarterly Weekly Report for Republican presidents. forRepublican ad lib CRS-9 was minority leader , nonotes,onamoment’s notice,” remarked in Members’ districtsaroundthecountry to ance, the Administration’s landmark budget ance, theAdministration’slandmark outlining waysoutlining to neutralizetheopposition’s IfHouse, White hisorherpartythe controls present a united front on issues. Minority present aunitedfrontonissues. acrossthecountry; and they write books or issues andassessthe “keepourpeopletogether, andtolookfor lop a coordinated communicationsstrategy, r party. In general,r party. minority leaders will the President and his aides about issues thePresidentandhisaidesabout On an administration proposal that could that Onanadministrationproposal period intheHouse; they conductsurveys debate on major issues before the House; beforethe issues onmajor debate programs andtodeve course, whenminoritycourse, leaderswillfault pirations oftheir party’s President in ssues to users; and theyand ssues tousers; organize task cratic controlledH ws conferences and consult with their with ws conferencesandconsult activitiestopublicizetheirparty’s Congress’ Permanent Minority? Congress’ Permanent e key strategists indeveloping (1981-1995), hetypically 27 party’s publicimage; President Ronald ouse wasdueinno lop strategies for , Feb.28,1981, http://wikileaks.org/wiki/CRS-RL30666 p. 250. manner thatprovidedthempolitical devised apoliticalstrategy thatallowedRe , R-MI. my responsibility hasbeentopropose Repub Minority Lyndon Leader during [President nationa a as branch initiativesandinacting House minority leader assumes a larger role in formulating alternatives toexecutive Masters oftheHouse 1997, p.1. Baker andRoger Davidson, eds., budget issues. President Clinton’slegislative initiatives Minority Leader Gephardt,asanother sinceI thisissue] [on my can’tharmonize ownviewswiththeadministration’s.” my “abdicate hemight role that leadership stated adversely Michel district, his affect 32 31 30 29 28 membership together exte requires often intrapartysubmerge interests, f and to for inducement minority party stay to members accommodate different to together, conference.” National Committeebudgeted $30,000annually toproducetheweekly news the press andmediadubbeditthe“EvCh leader, CharlesHalleck,R-IN following the weekly jointleadership meeting. Ford’s predecessor as minority to actasnationalspokesmen p. 2. James M.Cannon,“Minority 1965-1973,” LeaderoftheHouseRepresentatives, in “White House Hei, SeeJim Vande Dorothy Collin,“MichelPlays toPeoria—and U.S.,” BurdetteLoomis, Consummate “The Minority Ibid., p.271. When by the White House iscontrolled the House majority party, then the Foster Party Harmony. Minority Senate with Leader teamed Ford also McKinley Everett R-IL, Dirksen, expect towinmany. argument. Usually welost;butwhen Or they couldvote foritandmake thesamealternative. up with abetter votecould againstThey prog theJohnson motionto recommit,the And ifweloston ourRepublicanmembers hadachoice: torecommitmotion then wewouldusually andgeta offeritas avote onthat. proposal.IfJohnson wethe lostintheCommitteefor substitute Whole, the of amendment phase,wewouldofferourprogramthe asa to When wegot generalin debate,”hesaid. “We usedatechniqueoflaying ourprogramout 32 29

, p.275. 30 Greatly outnumbered in the House, Minority Leader Ford GreatlyMinority outnumberedintheHouse, 31

for theirparty. They metwiththe press every Thursday , probably receivedmorevisibility inthisrole,because First AmongEquals Minority status,by itself,isoftenanimportant Sidesteps Gephardt’sLeadership,” protection.AsFord explained: CRS-10 example, haspubliclyexample, opposedanumberof actional disagreements. Toholdadiverse you’re only 140 outof435,you140 don’t only you’re from “fast track” trade authority to various nsive consultationsanddiscussionswith publicans tooffertheiralternativesina lican alternatives,”saidMinority Leader l spokespersonforhisor her party. “As Johnson’s] Democra Johnson’s] ram andsay wedidourbesttocome Leader: Everette M.Dirksen,” inRichard arlie Show.” InShow.” arlie fact,the“Republican (Washington,D.C. Chicago Tribune tic administration, : CQPress,1991), Roll Call , Aug. 16, 1982, , July 7, 28 http://wikileaks.org/wiki/CRS-RL30666 minority party. breakfast, lunch, ordinner) tolay outfloorstrategy political objectives or forthe Leader’s the in (orat office dailymeetings and structure; leadership the in partisans of newleadershippositionsasaway tor creation the consensus onissues; reach to views conflicting colleagues with partisan for fostering party harmony includethea Gephardt said: controlled bytheminor rank-and-file Membersand w 35 34 33 manyfactors that may result inmajority thatthecongressionalapparent reco seems onhowthisistobedone.“If set formula of the minoritypartyher or leaderto majorityhis lead isto control. Yet there isno Members, managing intraparty conflict, and forging party unity. The ultimate goal and publicizing his orher party’s priorities, the majority leadership, the minoritypromoting in him leaderfor out has hisworkcut to bedoneget thebestperformance”fromminority party. Jones, Jones, Davidson, et.al., Eliza NewlinCarney, Given the concentration ofagendaand other institutional control resources in Gephardt addedthat “inclu up, andinvolve peopleinfiguring outwhatthatis. down. I thinkpolic youbuild haveto alotmoreThere’s communication. I believe leadershipisbottom weekly ranking Member meetings.effectiveness meetings. Wehave party haveweeklyWe meetings. caucus Wehave daily leadershipmeetings. Wehave The Minority PartyinCongress Masters oftheHouse Concluding Observations “Don’t Count Us Out,” “Don’t CountUs ity partyanditsleaders ith different factionalgroupings. AsMinority Leader sion and empowerment of the people on the line have line sion andempowermentofthepeopleon CRS-11 , p.23.Emphasis in theoriginal statement. , p.323. yand strategy andvision from thebottom status. Most of the other factors status.Mostoftheother each outandinvolveagreater diversity of ppointment oftaskforcescomposed serving the interests ofhisrank-and-file rd oftheminority party isonly oneof the history ofelectionsisany guide, it National Journal .” 35 33 , Apr.29,1995, p. 1024. 34 Other techniques Other up, not top cannot be http://wikileaks.org/wiki/CRS-RL30666 an63 Mann nl 73 Snell ae .Mn,RI 62 James R.Mann,R-IL ern .Sel -Y72 Betrand H.Snell,R-NY an65 61 59 Mann 58 Clark Williams/, D-MO Williams SharpWilliams,John D-MS atn79 78 80 77 75 76 70 , D-TX 69 Martin 71 Martin Martin 66 R-MA W.MartinJr., Joseph 68 Snell 67 N.Garner,D-TX John Garrett Garrett Garrett,D-TN Finis J. D-NC Claude Kitchin, Clark ihrsn57 Richardson ae .Rcado,DT 56 James D.Richardson,D-TN an64 Mann nl 74 Snell Appendix. HouseMinority Leaders,1899-2006 ioiyLae Congress Minority Leader a CRS-12 60 th nd nd rd rd th th th th th th th th th th th th th th th th th th st st (1899-1901) (1909-1911) (1929-1931) (1915-1917) (1907-1909) (1905-1907) (1903-1905) (1901-1903) (1947-1949) (1945-1947) (1943-1945) (1941-1943) (1939-1941) (1937-1939) (1935-1937) (1927-1929) (1925-1927) (1923-1925) (1921-1923) (1919-1921) (1917-1919) (1913-1915) (1933-1935) (1911-1913) (1931-1933) http://wikileaks.org/wiki/CRS-RL30666 abr 83 Rayburn Ford/John J. Rhodes,R-AZ J. Ford/John od92 82 Ford Martin ihl102 Michel ihl103 Michel od91 90 88 87 89 85 86 Ford Ford Gerald R.Ford,R-MI Halleck Halleck Charles A. Halleck, R-IN Martin ehrt106 105 101 100 99 98 96 Gephardt 95 Gephardt 97 Michel Michel Michel Michel Robert H.Michel,R-IL Rhodes Rhodes atn81 Martin atn84 Martin hds94 Rhodes ihr .Gpad,DM 104 Richard A.Gephardt,D-MO ioiyLae Congress Minority Leader b CRS-13 93 nd nd rd rd th th th th th th th th th th th th th st st nd rd th th th th st (1969-1971) (1949-1951) (1967-1969) (1965-1967) (1963-1965) (1961-1963) (1959-1961) (1957-1959) (1955-1957) (1985-1987) (1983-1985) (1981-1983) (1979-1981) (1977-1979) (1975-1977) (1953-1955) (1973-1975) (1951-1953) (1971-1973) (1989-1991) (1999-2001) (1997-1999) (1995-1997) (1987-1989) (1993-1995) (1991-1993) http://wikileaks.org/wiki/CRS-RL30666 b. Rhodes became minority leaderon Dec.7,1973,filling the vacancy caused by the resignation of a. Clark became minority leaderin 1908. Source: eoi109 108 Pelosi ,D-CA ehrt107 Gephardt Ford on Dec. 6,1973,to become vice president.

Guide to Congress ioiyLae Congress Minority Leader , Fifth Edition, Vol.II,Washington,CQ D.C.: Press, 2000,pp.1102-1103. CRS-14 th th th (2005-2006) (2003-2005) (2001-2003)