Splash Screen Chapter Introduction Section 1How Congress Is Organized Section 2The Powers of...

Chapter Introduction

Section 1 How Congress IsOrganized

Section 2 The Powers of Congress

Section 3 Representing the People

Section 4How a Bill Becomes a Law

Review to Learn

Chapter Assessment

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Chapter OverviewIn Chapter 6 you will learn about the United States Congress. Section 1 describes the roles of party leaders and committees in Congress. Section 2 explains the powers Congress uses to reach its goals. Section 3 analyzes the duties of congressional staffs and agencies. Section 4 examines how a bill becomes a law.

Chapter ObjectivesAfter studying this chapter, you will be able to:

• Explain how Congress works. • Describe the powers of Congress. • Examine the work of those employed

by Congress.

• Describe how a bill becomes a law.

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Guide to Reading

In Congress, members of each party select their own leaders and work mainly in committees to carry out their duties.

• bicameral

Main Idea

Key Terms

• census • constituent

• gerrymander

• majority party • minority party • standing committee

• seniority


Terms of Congress• The Framers of the U.S. Constitution

intended the legislative branch to be the most powerful branch.

• Each term starts January 3 of odd-numbered years and lasts two years. Each term has two sessions.

• Congress holds special sessions in times of crisis.

• A joint session occurs when both houses meet together, such as for the president’s State of the Union address.

(page 138)(page 138)

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A Bicameral Legislature• The Great Compromise established

Congress as a two-part, or bicameral, body.

• The House of Representatives has 435 voting members, allotted to the states by population.

• After each census, or population count taken by the Census Bureau, Congress adjusts the number of representatives given to each state.


(pages 139–140)(pages 139–140)

A Bicameral Legislature (cont.)

• States are divided into districts, with one representative elected from each district.

• The states draw districts to include roughly the same number of constituents, or people represented. Some abuse the process by drawing a gerrymander, or oddly shaped district designed to increase the voting strength of a particular group.


(pages 139–140)(pages 139–140)

• House members focus on the concerns of their district.

• The Senate has 100 members–two from each state.

• Senators represent their entire states.

• They serve six-year terms.

• Elections are staggered to ensure some stability.


(pages 139–140)(pages 139–140)

A Bicameral Legislature (cont.)

Congressional Leaders• In both houses, the political party to

which more than half the members belong is the majority party.

• The other party is the minority party.

• Party members choose their leaders at the beginning of each term.


(pages 140–142)(pages 140–142)

Congressional Leaders (cont.)

• The Speaker of the House is the most powerful leader in the House of Representatives.

• The Speaker always belongs to the majority party.

• The Speaker is in charge of floor debates and influences most House business.

• If something happened to the president and vice president, the Speaker would become president.


(pages 140–142)(pages 140–142)



• The leader of the Senate is technically the vice president, who rarely attends and votes only in case of a tie.

• The person who actually acts as chairperson is the president pro tempore.

• The majority party fills this mostly ceremonial position.

(pages 140–142)(pages 140–142)



• Powerful floor leaders try to make sure the laws Congress passes are in the best interest of their own party.

• They speak for their parties on the issues and try to sway votes.

• Party “whips” help by keeping track of where their party members stand on issues and rounding them up for key votes.

(pages 140–142)(pages 140–142)


Committees: Little Legislatures• The detailed work of lawmaking is done in

committees.

• Each house has permanent standing committees that continue their work from session to session.

• Most are divided into smaller subcommittees that deal with specialized issues.

• Both houses also have select committees that are created to do a special job for a limited period.

(pages 142–144)(pages 142–144)


Committees: Little Legislatures (cont.)

• They disband after completing their task.

• Joint committees include members of both houses.

• Temporary conference committees help the House and Senate agree on the details of a proposed law.

(pages 142–144)(pages 142–144)


• Members of Congress try to get assigned to important committees that affect the people who elected them.

• Party leaders make committee assignments based on members’ preferences, expertise, party loyalty, and seniority, or years of service.

(pages 142–144)(pages 142–144)



• Members with the most seniority usually get the preferred committee spots.

• The most senior members from the majority party traditionally become chairpersons.

• Chairpersons of standing committees are the most powerful members of Congress.

(pages 142–144)(pages 142–144)


CloseDo you think the current method of apportionment is fair to all U.S. citizens?

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Guide to Reading

While the Constitution limits the powers of Congress, it also gives Congress the powers it needs to conduct its business and accomplish its goals.

• expressed powers

Main Idea

Key Terms

• implied powers • elastic clause

• impeach

• writ of habeas corpus

• bill of attainder

• ex post facto law


Legislative Powers• Article I, Section 8 of the Constitution

lists Congress’s specific or expressed powers.

• Clause 18 gives Congress implied powers (not stated explicitly) to do whatever is “necessary and proper” to carry out the expressed powers.

• Clause 18 is often called the elastic clause because it allows Congress to stretch its powers to meet new needs.

(pages 146–147)(pages 146–147)


Legislative Powers (cont.)

• Congress has the power to collect taxes to pay for government and its services.

• All tax bills must start in the House of Representatives and be approved by the Senate.

• Congress spends money by means of a two-step process.

• Authorization bills create projects and set an amount to be spent on them.

(pages 146–147)(pages 146–147)


• Appropriations bills actually provide the money for each program.

• Article I, Section 8, Clause 3, the “commerce clause,” gives Congress the power to regulate foreign and interstate commerce.

• Laws dealing with air traffic, television, and air pollution are all based on this clause.


(pages 146–147)(pages 146–147)


• Only Congress can declare war. Congress has the power to create, maintain, and oversee an army and navy.

• The Senate must approve all treaties with other countries.


(pages 146–147)(pages 146–147)


Nonlegislative Powers• Congress has powers not related to

making laws.

• It can propose constitutional amendments.

• It counts electoral votes in presidential elections.

• If no one receives a majority, the House picks the president and the Senate picks the vice president.

• If a president dies, resigns, or is too ill to serve, Congress settles the matter.

(pages 148–149)(pages 148–149)


• Congress has the power to check other branches.

• The Senate can approve or reject the president’s nominations for jobs such as Supreme Court justice, federal judge, and ambassador.

• The House may impeach, or accuse officials of misconduct.

• If the majority of House members vote to impeach, the matter goes to the Senate.

Nonlegislative Powers (cont.)

(pages 148–149)(pages 148–149)


• A two-thirds vote in the Senate is required to remove the person from office.

• Congress has taken on the role of overseeing government activities.

• Standing committees review how well the executive branch has put laws into practice.

• Congress conducts special investigations that may lead to criminal charges or new laws to deal with the problem.

Nonlegislative Powers (cont.)

(pages 148–149)(pages 148–149)


Limits on Power• The Constitution imposes limits on

Congress.

• It may not pass laws that violate the Bill of Rights.

• Article I says that Congress may not favor one state over another, tax interstate commerce, or tax exports.



• Congress cannot suspend the writ of habeas corpus.

• This is a court order that requires police to explain why they are holding a suspect.

• Congress may not pass bills of attainder, or laws that punish a person without a jury trial.

• Congress may not pass ex post facto laws that make an act a crime after the act has been committed.


Limits on Power (cont.)


• Congress may not interfere with powers reserved for the states.

• Other branches can check the power of Congress.

• The Supreme Court may declare laws unconstitutional.

• The president can veto bills.


Limits on Power (cont.)

CloseWhich powers of Congress do you think have the greatest impact on Americans’ lives today? Why?


Guide to Reading

The work of Congress is so complex that in addition to elected representatives, Congress employs many staffers who help with the workload.

• franking privilege

Main Idea

Key Terms

• lobbyist • casework

• pork-barrel project



Requirements and Benefits of Congress• Both senators and members of the

House must live in the state they represent.

• House members usually live in their districts, but are not required to do so.

• Senators must be at least 30 years old; House members, 25.

• Senators must have been citizens for at least nine years; House members, seven years.

(pages 151–152)(pages 151–152)


Requirements and Benefits of Congress (cont.)

• Most members of Congress have college degrees.

• Nearly half are lawyers. • Members receive a salary of $150,000,

free office space, and trips to their home states.

• They have the franking privilege–they may send job-related mail for free.

(pages 151–152)(pages 151–152)


Requirements and Benefits of Congress (cont.)

(pages 151–152)(pages 151–152)

• The Constitution grants senators and representatives immunity, or legal protection, in some situations.

• They may not break the law, though.


Congressional Staff: Behind-the-Scenes Helpers• The personal staff run the offices.

• They gather information on issues, arrange meetings, and write speeches.

• They handle requests from voters.

• They deal with reporters and lobbyists–people hired by private groups to influence government decision makers.

• The staff works for the member’s reelection on their own time.

(pages 152–153)(pages 152–153)


Congressional Staff: Behind-the-Scenes Helpers (cont.)

• Members of Congress hire students from their home states or districts to serve as interns and pages.

• Interns help with research and office duties.

• Pages deliver messages and run errands.

• Committee staffs generally have expert knowledge about special topics, such as taxes or defense.

(pages 152–153)(pages 152–153)


• The Library of Congress provides information for members of Congress and their staffs.

• The Library’s Congressional Research Service looks up facts and spells out arguments for and against bills.

• The General Accounting Office reviews spending activities of federal agencies, studies programs, and recommends ways to spend taxpayers’ dollars wisely.

(pages 152–153)(pages 152–153)



• The Congressional Budget Office provides information and analyses to help Congress create a budget.

• It estimates costs and economic effects of programs.

(pages 152–153)(pages 152–153)



Members of Congress at Work• Congressional sessions begin each

January 3.

• In representing the people who elected them, members of Congress carry out three major jobs.

• Congress members make laws.

• They introduce bills, work on committees, listen to input for and against bills, and then vote.

(pages 153–155)(pages 153–155)


Members of Congress at Work (cont.)

• Congress members do casework–they troubleshoot for people from their home district or state who request help in dealing with the federal government.

• Congress members protect the interests of their state or district.

• For example, a senator from a state with strong timber industries might seek to influence logging policies.

(pages 153–155)(pages 153–155)


• Members also work to gain a share of national government spending for their constituents.

• A government contract can bring a lot of money to local businesses and jobs for local people.

• Government projects and grants that primarily benefit the home district or state are called pork-barrel projects.

Members of Congress at Work (cont.)

(pages 153–155)(pages 153–155)

CloseWhy are personal staffs needed for members of Congress?


Guide to Reading

Several complex steps are involved in taking an idea and turning it into a law.

• joint resolution

Main Idea

Key Terms

• special-interest group

• rider • filibuster

• cloture

• voice vote • roll-call vote • veto

• pocket veto



Types of Bills• Of the more than 10,000 bills introduced

each congressional term, only several hundred become law.

• Bills fall into two categories.

• Private bills concern individual people or places.

• Public bills apply to the entire nation and involve general matters like taxation, civil rights, or terrorism.

(pages 157–158)(pages 157–158)


Types of Bills (cont.)

• Congress also considers different kinds of resolutions, or formal statements expressing lawmakers’ opinions or decisions.

• Many resolutions do not have the force of law.

• Joint resolutions are passed by both houses of Congress and do become law if signed by the president.

(pages 157–158)(pages 157–158)


From Bill to Law• Ideas for bills come from members of

Congress, citizens, and the White House.

• Other bills are suggested by special-interest groups, or organizations of people with some common interest who try to influence government decisions.

• Only senators and representatives may introduce bills in Congress.

• Every bill is given a title and number, and is then sent to an appropriate standing committee.

(pages 158–161)(pages 158–161)


From Bill to Law (cont.)

• The committee chairperson decides which bills get ignored and which get studied.

• Those that merit attention are often researched by a subcommittee.

• Experts and citizens may voice opinions about a bill in public hearings or written statements.

(pages 158–161)(pages 158–161)


• Standing committees can:

- (1) pass the bill without change, - (2) mark changes and suggest that the

bill be passed,

- (3) replace the bill with an alternative,

- (4) pigeonhole the bill (ignore it and let it die), or

- (5) kill the bill by majority vote.

• When a committee is against a bill, it almost never becomes law.


(pages 158–161)(pages 158–161)


• Bills approved in committee are put on the schedules to be considered by the full House or Senate.

• The Senate usually takes up bills in the order listed.

• In the House, the Rules Committee can give priority to some bills and not let others get to the floor.


(pages 158–161)(pages 158–161)


• When bills reach the floor, members debate the pros and cons.

• The House accepts only relevant amendments.

• The Senate allows riders–completely unrelated amendments–to be tacked onto the bill.


(pages 158–161)(pages 158–161)


• The House Rules Committee puts time limits on the discussion.

• Senators may speak as long as they like and need not even address the topic at hand.

• Sometimes they filibuster, or talk a bill to death.

• A three-fifths vote for cloture can end a filibuster.


(pages 158–161)(pages 158–161)


• In a simple voice vote, those in favor say “Yea” and those against say “No.”

• In a standing vote, those in favor stand to be counted, and then those against stand.

• The House uses a computerized voting system that records each representative’s vote.

• Senators voice their votes in turn as an official records them in a roll-call vote.


(pages 158–161)(pages 158–161)


• A simple majority of members present passes a bill.

• After passing one house, the bill then goes to the other.

• If either house rejects the bill, it dies.

• Both houses must pass an identical bill.

• If either changes the bill it receives from the other house, a conference committee is formed to work out the differences.


(pages 158–161)(pages 158–161)


• The House and Senate must then either accept the revised bill as is or completely reject it.

• After a bill passes both houses, it goes to the president.

• The president may sign it into law, veto (or refuse to sign) it, or do nothing for 10 days.


(pages 158–161)(pages 158–161)


• Then if Congress is in session, the bill becomes law without the president’s signature.

• If Congress had adjourned, the bill dies.

• Killing a bill this way is called a pocket veto.

• Congress can override a veto with a two-thirds vote of each house.


(pages 158–161)(pages 158–161)

CloseDo you think democracy would be helped or hindered if passing laws were an easier process? Explain.


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