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Congress and American Political Development Author(S): Ira Katznelson and John S At the Crossroads: Congress and American Political Development Author(s): Ira Katznelson and John S. Lapinski Reviewed work(s): Source: Perspectives on Politics, Vol. 4, No. 2 (Jun., 2006), pp. 243-260 Published by: American Political Science Association Stable URL: http://www.jstor.org/stable/3688263 . Accessed: 25/07/2012 11:46 Your use of the JSTOR archive indicates your acceptance of the Terms & Conditions of Use, available at . http://www.jstor.org/page/info/about/policies/terms.jsp . JSTOR is a not-for-profit service that helps scholars, researchers, and students discover, use, and build upon a wide range of content in a trusted digital archive. We use information technology and tools to increase productivity and facilitate new forms of scholarship. For more information about JSTOR, please contact [email protected]. American Political Science Association is collaborating with JSTOR to digitize, preserve and extend access to Perspectives on Politics. http://www.jstor.org Articles Atthe Crossroads: Congress and AmericanPolitical Development IraKatznelson and John S. Lapinski hisessay starts with an observation,proceeds to an advantages.4This is a promisingmoment for a ventureof exhortation,and concludeswith a setof suggestions. thiskind. Congressional scholars have been thinking more Congresshas beensituated on theoutside edge of and morein historicalterms, and a considerablebody of the subfieldof AmericanPolitical Development (APD) relevantliterature, just to theside ofAPD, by suchlead- despitethe institution's centrality both to thepolitical his- ingscholars as David Mayhew,David Brady,R. Douglas toryof theUnited States and to politicalscience as a dis- Arnold,and CharlesStewart awaits better integration with cipline.Apart from an importantbut limitednumber of thatintellectual tradition.5 Much APD work,moreover, works-includinga long-termresearch enterprise on the even when elidingCongress as a majorresearch site, is roleof sectionalism conducted by Richard Bensel, a study readywith a rangeof suitable,if oftenimplicit, sugges- ofthe antebellum Senate by Elaine Swift, an assessmentof tionsfor how to proceed. the alliance betweenfarmers and workersin the half- Yet even as the gap betweenAPD and the studyof centuryafter 1877 byElizabeth Sanders, a majorwork on Congressshows signs of closing,a seriousdegree of sepa- institutionaltransformations in the House and Senateby rationremains. Unless overcome, this division will con- Eric Schickler,and a small number of emergent tinueto makeAPD vulnerableto excessiveenclosure and inquiries'4-"scholars in theAmerican Political Develop- disciplinarymarginality. Reciprocally, more of an engage- menttradition," as KeithWhittington has noted,"have ment of congressionalscholarship with APD can offer neverfully integrated Congress, as theyhave other impor- legislativespecialists the chanceto broadentheir ques- tantinstitutions such as thebureaucracy, the presidency, tions,methods, and researchprograms, allowing them to politicalparties and thecourts."2 move morecapably in directionsthat are both rigorous This comparativeneglect has weakenedAPD unneces- and deeplyhistorical. sarilyas an intellectualand methodologicalproject, and Thereis morethan one wayto advancethe program of has stuntedits important research program on liberalism, makingthe study of Congressas an institutionand as a state-building,periodization, and policy history.3 We write sitefor discussion, behavior, and choiceabout public pol- to encourageAPD to engage more fullywith "main- icya moreconstitutive part of APD. Congressboth con- stream"scholarship on Congresswhile taking care to do venes and enhances a public sphere of deliberation. so withoutlosing its own particularityor itscomparative Followingthe lead of JosephBessette and Mayhew,6we can probehow individual members, groups of representa- tives,and the House and Senateas bodiesconsider and Ira Katznelsonis RugglesProfessor ofPolitical Science and debatepolicy alternatives. As a keypart of theseparation Historyat ColumbiaUniversity (iikl @columbia.edu). of powerssystem, it is possibleto tracethe dynamicsof JohnS. Lapinskiis Assistant Professor ofPolitical Science at whatSamuel Huntingtononce labeleda 'Tudor polity,' YaleUniversity ([email protected]). This article andhow these institutional concatenations have been trans- reflectsthe work of the American Institutions Project located formedover time. Of thevarious potential pathways to at theInstitute for Social and EconomicResearch and closerties between APD and Congress,the one we find Policyat ColumbiaUniversity and theInstitution for mostpromising, in partbecause it offersa passagewayto Socialand PolicyStudies at YaleUniversity, the support of theothers and in partbecause it linksup ratherdirectly to theNational Science Foundation (SES 0318280 and SES relevantstudies in public policy,would revivea once- 03188289), and theconducive environment for research prominentpolitical science literature on thesubstance of and writingprovided by the Russell Sage Foundation. We lawmaking.How, this now largely dormant body of work particularlywish to thankRose Razaghian for her reading wishedto know,does thecontent of mattersunder legis- and suggestions,Eldon Porter for his assistance, and the lativeconsideration shape how members act. With its focus threeanonymous readers for this journal. on the character,institutions, timing, and languageof June2006 i Vol.4/No. 2 243 Articles I Atthe Crossroads: Congress and American Political Development Americanhistory, APD is especiallywell-poised to lead a executivebranch traces the developmentof keyinstitu- revitalizationof thisscholarly genre. In so doing,we sug- tionsin themedium and longterm. Last, there is a size- gest,APD can deepenits own scholarshipwhile offering able bodyof APD writingon politicalspeech and ideas, freshand powerfulcontributions to studiesof Congress includingimportant contributions by J. David Green- and, moregenerally, to our understandingof American stoneand Eldon Eisenach.9 politics. APD's practitionershave returned again and againto a smallnumber of vital substantive themes-especially the character,contours, and limitsof theliberal political tra- APD's Purposes ditionand thequalities of the national state in a political APD encompassestwo closely related purposes. First, as a systemthat rarely even utters that term, except, of course, disciplinaryorientation, it designatesa politicalscience as a statementabout federalism.ioReviving and advanc- subfieldwith a characteristicapproach to historicalanaly- ingan intellectualconversation pioneered in the 1950s,1 sisand theselection of problems. Part of the larger family theyhave asked which political ideas and ideologies,espe- of HistoricalInstitutionalism, this body of writing is dis- ciallythose associated with the western liberal tradition, tinguishedby a richengagement with the past, by doubts have shaped the developmentof the Americanregime. aboutthe constancy of models,generalizations and polit- Associatingwith the effortto 'bringthe stateback in',12 ical behavioracross time, and by joiningnormative and theyalso have soughtto understandhow the national positivetheory. APD's commitmentto truth-seeking,foun- government,despite very modest beginnings, developed dations,and empiricalrigor, which it shareswith these as a modernnational state. Concerned to understandnot currents,in turnplaces it at oddswith many non-positivist onlywhat government is butwhat it does,they also have approachesto languageand significationthat are far more probedthe reciprocal links connecting politics to policy, skepticalabout systematic political studies, thinking them the relationshipof ideas and interests,the impact of to be covertexpressions of power.APD standsapart, as sequencingand pathdependence, configurations ofcausal well, frompolitical historyby being more explicitly processes,and the sourcesof preferenceswhen situated informedby conceptualcategories, model-building exer- historically.13To probethe conjunction of liberalism and cises,concerns drawn from the lineage of political thought, state,APD has stressedthe importanceof systematic andsystematic considerations of temporality.7Though dis- approachesto temporality,including distinctions between tinctive,APD hasnot been autarchic. Rather, it has engaged "critical"and morenormal moments, and themechanism in backand forthexchanges with each of these intellectual of policyfeedback. communitiesand traditions, all thewhile insisting on prin- APD can boastmany advances on thesetracks, even as ciplesof engagement-historicalspecificity, complex but a still-youngventure. These include more and betterwork notopen causation, and a thickspecification of actors and on Americanpolitical history than much of the history preferencesplaced inside determinate situations. profession,especially during the long period, now coming Workingwithin this family of approaches,APD also to a close,when political studies were thought to be old- has soughtas a secondgoal, indeed as itsprincipal objec- fashioned,even passe, by manyyounger historians. APD tive,to bringthe content of American history "into sharper can claimat leastpartial credit for a growinginterest in relief".8To thisend, APD scholarsprimarily have worked historicalevidence and dynamicsby colleagues in political in fourgenres. Some explorecritical periods through sim- sciencewho are inclined to deductive modeling and large-N plification;that is, by highlighting a small number of fac- studies.It also has providedan empiricalspine
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