CONSTRUCTING A PROFESSIONAL LEGISLATURE: THE PHYSICAL DEVELOPMENT OF CONGRESS, 1783-1851 By JASON S. KASSEL A DISSERTATION PRESENTED TO THE GRADUATE SCHOOL OF THE UNIVERSITY OF FLORIDA IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY UNIVERSITY OF FLORIDA 2008 1 © 2008 Jason S. Kassel 2 To Lawrence C. Dodd 3 ACKNOWLEDGMENTS I have dedicated this dissertation to Lawrence C. Dodd, or Larry to all who know him, for his support throughout the entire process. Larry was the essence of a mentor, a person who is caring, faithful, and focused on the success of all his students. He was always there to provide a reassuring word of encouragement and from him I learned to be both a better scholar and a better person. There is simply no way I can repay him for all he provided me over the years, including access to the beautiful beaches of Ipanema and Copacabana in Rio de Janeiro where I spent the summers of 2005, 2006, and 2007. In that beautiful locale, I was able to contemplate on the workings of the 19th century Congress, focus on my writing, and pull the dissertation together. My initial research was supported by a Dirksen Congressional Grant I received that allowed me access to the National Archives in the summer of 2004. It was there that I encountered the key primary document, House Report 646, which brought empirical substance to the dissertation. This document is now available through the Lexis Nexis Congressional database and, for that, I thank the Internet. My dissertation committee was invaluable throughout the process. In no order of importance let me thank them. Beth Rosenson helped me strengthen the portions of the dissertation focusing on professionalization. Dan Smith was an advisor who continually pushed me to write better and be focused in presenting an argument. Dan O’Neill helped me think theoretically about issues of conceptual change and American development. Finally, my outside committee member, Julie Dodd, was helpful and instructive throughout. All of them were extremely generous with their time and for that I extend a great deal of gratitude. I also thank some of my fellow graduate students at the University of Florida, three of whom stand out. The most important influence on my development while there was Bryan Williams, an individual who is constantly theorizing about matters of state development and, 4 through shear osmosis, manages to impart wisdom on all those around him. Special thanks are also extended to Susan Orr (Sox) who taught me the meaning of academic dedication and who may simply be the best student I have come across. Finally, I thank Amy Hager who provided wonderful friendship and the insights of youthful enthusiasms during our walks around the city of Gainesville. Of course, any faults with the work are entirely my own. 5 TABLE OF CONTENTS page ACKNOWLEDGMENTS ...............................................................................................................4 LIST OF TABLES...........................................................................................................................9 ABSTRACT...................................................................................................................................10 CHAPTER 1 INTRODUCTION ..................................................................................................................11 Organizational Learning .........................................................................................................17 Spatial Functionality...............................................................................................................19 Five Periods of Early Congressional History .........................................................................24 Period I: 1783-1789.........................................................................................................24 Period II: 1789-1800........................................................................................................26 Period III: 1801-1814 ......................................................................................................27 Period IV: 1814-1829......................................................................................................28 Period V: 1829-1851 .......................................................................................................29 Conclusion ..............................................................................................................................30 2 WANDERINGS OF THE CONFEDERATION CONGRESS ..............................................31 Primary Documents: Burnett’s Letters of Members of the Continental Congress.................32 New Population of Letters...............................................................................................33 Temporal and Geographic Characteristics ......................................................................34 Sender/Recipient Identities..............................................................................................35 Experiential Learning Narrative .............................................................................................37 Philadelphia Line Mutiny................................................................................................39 Congressional Life in Princeton, NJ................................................................................41 Governing in Two Capitals .............................................................................................46 Functioning in New York................................................................................................52 Constitutional Convention and Ratification ....................................................................55 Creating the New Government........................................................................................57 Conclusion ..............................................................................................................................60 3 ESTABLISHING INSTITUTIONAL STABILITY...............................................................63 Congress: Institutional Context of the 1790s..........................................................................65 Congress and the Seat of Government Policy Narrative ........................................................68 New York Provides a New Building...............................................................................69 Seat of Government Policy Revisited 1790.....................................................................70 Congress in Philadelphia .................................................................................................72 Washington’s Hobby Horse ............................................................................................74 Seat of Government Policy Revisited 1791.....................................................................75 6 Constructing a Capitol for the Ages ................................................................................78 Unexpected Dynamic: The Power of Pestilence .............................................................80 Congress Becomes Involved ...........................................................................................81 Pestilence Returns ...........................................................................................................85 Funding the Accommodation of Government.................................................................85 Relocating the Seat of Government.................................................................................88 Conclusion ..............................................................................................................................91 4 PRAGMATICALLY DEVELOPING A PHYSICAL WORK ENVIRONMENT................95 Political Context .....................................................................................................................96 Congress Develops a Physical Work Environment 1800-1814..............................................99 Congress Arrives in Washington, D.C. ...........................................................................99 Jefferson’s Arrival.........................................................................................................100 Discovering Organizational Needs................................................................................103 Debating Removal and Relocation................................................................................104 House and Senate Cope with Construction Difficulties................................................109 House Asserts Control...................................................................................................110 Furnishing the Work Environment................................................................................112 Intrusions Upon the Business of the House...................................................................114 Administrative Oversight ..............................................................................................115 Complete and Finish......................................................................................................117 More Committee Rooms, Please ...................................................................................119 End to the Building Process ..........................................................................................121 Conclusion