Clinton,Congress, and Cuba Policy Between Two Codifications: The Changing Executive-Legislative Relationship in Foreign Policy Making

We examine the changing dynamics of institutional control over U.S. policy toward Cuba that have played out during the time between two codifications of Cuba policy: The 1996 Helms-Burton legislation that codified the long-standing embargo policy as law, and the 2000 bill that wrote travel restrictions into law. The study of who makes U.S. foreign policy has long been characterized by a debate over the respective roles of the president and Congress in this area, but-in theory, at least-Helms-Burton should have put an end to the scholarly debate about who makes Cuba policy: With codification, Congress does. But the practice of making Cuba policy has been more complicated than it might have first appeared in March 1996. We track the politics of Cuba policy between these two codifications and try to understand what they mean for who makes Cuba policy now, and speculate about what these dynamics may more generally mean.     

Book Reviews

Abstract

The coordinated behavior of members of a state delegation to the U.S. Senate can provide constituents in a state greater representation in Congress. Despite this potentially improved level of representation through coordination, popular and scholarly accounts of the U.S. Senate often feature senators from the same state at odds with one another on a variety of policy issues. In this research, we investigate competing expectations regarding the frequency (across topics) of collaborations between members of a state delegation to the Senate. We then test our expectations using patterns in bill cosponsorship in the 103rd–110th U.S. Senates. We find that senators from the same state work together often on the development of legislation, and that this coordinated activity is consistent across a variety of bill topics across many sessions of congressional activity. Notably, same-state status is an even stronger predictor of support via cosponsorship than is same-party status, raising possible avenues of breaking through partisan gridlock.     

The Pendulum of Congressional Power: Agenda Change,Partisanship and the Demise of the Post-World War II Foreign Policy Consensus

Many scholars contend that Congress rarely matters in the realm of foreign policy. The source of this collective impotence is often explained by the weaknesses in congressional institutions vis-a-vis the president, as well as a general inability to respond effectively to a dynamic international political environment. We contend that the debate over congressional activism has not adequately addressed the role of agenda change. We analyze all roll call votes in the House of Representatives relating to the international affairs agenda between 1953 and 1998. We find that presidents have become significantly more likely to stake out positions on economic and trade issues as compared to other international issues. We also observe that presidential positions in the realm of foreign policy are increasingly characterized by interparty and interinstitutional conflict. While this increased conflict has dramatically decreased the president's ability to successfully pass executive priorities in foreign affairs more generally, presidential success on economic and trade issues has witnessed a significantly greater decline. We infer from these results that changes to the foreign policy issue agenda represent one important factor that has affected not only the incentives for political parties to participate actively, but also the willingness of Congress to challenge the president in the foreign policy debate.Asked one day whether it was true that the navy yard in his district was too small to accommodate the latest battleships. Henry Stimson (chair of the House Naval Affairs Committee early in the century) replied, 'That is true, and that is the reason I have always been in favor of small ships.'1Carriers have been, are and will be for the foreseeable future an absolutely essential part of our deterrence force…2John Warner, senator from Virginia, home state of Newport News Shipbuilding     

A Review of “Fighting for the Speakership: The House and the Rise of Party Government”

We explore the sensitivity of Congress to statements of administration policy (SAPs) and signing statements in the struggle with the executive over policy. We hypothesize that the nature and use of objections contained in these presidential communications generates additional congressional oversight. To test whether this happens, we developed a dataset with all SAPs, signing statements, and congressional oversight hearings from 1997 through 2007. The results indicate that the type and number of objections raised in presidential communications affects congressional oversight activity.     

CONVRT: A COMPUTER PROGRAM FOR THE CONVERSION OF FREE-FIELD DATA TO FIXED-FIELD DATA FORMAT

Abstract

Historians of the U.S. Congress often draw claims from interpretations of legislators’ rhetoric and the outcomes of key votes. In this article, the author tells a cautionary tale: Such strategies ignore the correspondence between roll-call voting on select issues and broader coalitional structures in Congress. He does so by examining contrary positions about a key issue during the New Deal: On the one hand, some researchers claim that reasoned congressional deliberation on the issue of administrative oversight was separate from the prevailing legislative concerns of the day. Other scholars, on the other hand, assert that the prevailing issue dimensions in Congress included administrative oversight. Using a Bayesian measurement method, Ordinary Least Squares, and probit regression, and a novel selection of roll-call data, the author tested these claims, concluding that broader coalitional structures subsumed issues of administration.     

The President as Agenda Setter‐in‐Chief: The Dynamics of Congressional and Presidential Agenda Setting

In this paper, we investigate the agenda leadership capability of two American political institutions, Congress and the presidency, in an array of issue areas that include both domestic and foreign policy. The president has long been considered to have the most significant role in setting the policymaking agenda, but there is limited empirical research to support that claim. Examining the issue areas of defense, environment, health care, international affairs, law and crime, and macroeconomics from 1956 to 2005, we find statistically significant positive influence by the president on the congressional agenda in all six of the policy areas under examination, providing compelling evidence of presidential agenda leadership and a reactive Congress. Additionally, we find that the agenda relationship between the president and Congress is issue dependent, in that presidential attention has the largest substantive effect on the congressional agenda in the area of international affairs.     

The Foreign Policymaking Role of Congress in the 1990s: Remote Sensing Technology and the Future of Congressional Power

In the midst of a period of Congressional assertiveness on foreign policy, a new technology has emerged for commercial use with the potential for enhancing Congress' information-gathering processes and agenda-setting role. The effect may alter the balance of power in the relationship between Congress and the President. Congress' access to news media stories of imagery may provide an independent information source on U.S. or foreign military installations and activities. Such a source could be utilized to assess issues such as Pentagon appropriations, treaty compliance, and foreign aid funding. The thesis of this article is that when interest groups and the news media use remote sensing imagery on foreign policy issues, the foreign and national security policymaking process will be transformed by enhancing the information status and the public agendasetting role of previously excluded segments such as interest groups, the news media, and the general public. The expanded role of these groups will decentralize decisionmaking by fragmenting power and likely restructure the relationship between the Congress and the executive over these policy areas during the 1990s.     

Alvis,J. David,Jeremy D. Bailey,and F. Flagg Taylor,IV. The Contested Removal Power, 1789–2010.

Abstract

In this article, we use legislative correspondence to determine who gains access to key staffers in a congressional office. To evaluate our theory of the office power hierarchy, we test hypotheses using an original dataset of more than 3,000 correspondence records from the office of former member of Congress James R. Jones. Our empirical analysis is supplemented by an e-mail interview with Representative Jones. We find that key senior staffers are more likely to pay attention to powerful individuals and nonroutine matters. Letters from women and families and those dealing with routine legislation are more likely to be answered by lower-ranked staffers. These results are important because they reveal that even something as simple as constituent correspondence enters a type of power hierarchy within the legislative branch where some individuals are advantaged over others.     

Congress and the Constitution: The Twenty-seventh Amendment and the Past and Future of Constitutional Alteration

The most recent addition to the U.S. Constitution is also one of the first proposed amendments. The 27^th Amendment restricts change to congressional salaries until after the next election. First drafted by James Madison and approved by Congress in 1789, the proposal was among a package of 12 items sent to the states. Ten of those proposed amendments were ratified and became known as the Bill of Rights. The others languished with only occasional attention by constitutional scholars. In the early 1980s, an undergraduate student at the University of Texas wrote a term paper arguing for adoption of the limits on congressional pay raises. After receiving a C grade from his teaching assistant and instructor, the student rejected the opinions of his teachers and independently pursued the adoption of Madison's proposal. Gregory Watson single-handedly mounted a letter-writing and lobbying campaign that caused state legislators to redirect their attention to the proposed amendment. In 1992, following a most unusual ratification process—including certification by the Archivist of the United States—the measure became the 27^th Amendment. In this article, we trace the history of the amendment, demonstrate that its impact has been more symbolic than substantive, and argue that Congress needs to reassert its authority over the amendment process in line with the letter and spirit of Article V. The 27^th Amendment has a peculiar constitutional history, and there are lessons we should learn from that experience.     

Five Factions,Two Parties: Caucus Membership in the House of Representatives, 1994–2002

This paper examines the extent of ideological cohesion and distinction of two Republican congressional factions (the conservative Republican Study Committee and the moderate Republican Main Street Partnership) and three Democratic congressional caucuses (the moderate Blue Dog Coalition, the liberal Congressional Black Caucus, and the liberal Congressional Progressive Caucus) in the House of Representatives from 1994 to 2002. Whereas much of the literature on congressional caucuses has focused on the reasons members join such groups and the policy and political orientations of those groups, this paper examines how much unity exists in the voting behavior of the members of Congress who join caucuses in comparison to their fellow partisans not in a faction. Although political parties are still a major unifying force for their respective party members, we do find that factional members are more ideologically cohesive than are nonfactional members. Joining a faction is not an insignificant activity for members. Factions allow like-minded colleagues to come together and vote on common issues, at times against direction of their party.     

Fulbright's Middle East: A Senator's Influence on American Foreign Policy

This article examines Sen. J. William Fulbright's views of and impact on U.S. policy toward the Middle East, particularly the Arab‐Israeli conflict. It contributes to the literature on the history of U.S.‐Middle East relations and the role of Congress in foreign policy. While Fulbright was not always (or even most of the time) successful in shaping debate and policy along the lines that he advocated, at several crucial junctures, he did have an important influence on U.S. policy toward the region.     

The Passenger Cases Reconsidered in Transatlantic Commerce Clause History

The Supreme Court's 5–4 decision in the Passenger Cases (1849) overturned two Northern states' taxes on poor foreign immigrants. The Court's eight opinions disputed whether destitute transatlantic immigrants arriving in U.S. ports were legally and constitutionally “persons” like fugitive slaves fleeing the South, free African Americans residing in the U.S.‐Canadian borderlands, and black seamen working on ships entering Southern ports. The eight opinions issued in the case, as Charles Warren noted, raised fundamental constitutional questions concerning whether U.S. congressional or state authority was exclusive or concurrent over persons moving in interstate and international business, reflecting wider sectional struggles fostering the Civil War. ¹ More recently, Mary Bilder and others examined connections among indentured contract labor, race‐based American slavery, and the Court's antebellum Commerce Clause decisions to establish that foreign immigrants were commercial objects subject to regulation through the Constitution's Commerce Clause. ² Southerners and Northern pro‐slavery supporters argued, however, that fugitive slaves and free blacks crossing interstate and international borders were “persons” who could be regulated or altogether excluded under state police powers. ³     

Neutral Bystander,Intrusive Micromanager,or Useful Catalyst?

An analysis of Forest Service-related legislative activity found that increasingly Congress is becoming involved in agency activities and decisionmaking. Congress's growing scrutiny and management of the Forest Service is indicated by rising trends in requests for agency testimony at congressional hearings, in the number of Forest Service-related bills and amendments introduced in Congress, and in the amount of Forest Service-related legislation enacted. Anecdotal evidence of direct political pressure imposed upon agency personnel by congressional members also indicates that much congressional influence occurs outside of these legislative activities. An examination of activities such as these and directives attached to annual appropriation bills also shows that not all congressional actions are productive in fostering positive agency change. The results of this study indicate the likelihood that Congress has been playing a major role in instigating change within the agency.     

Toward an Understanding of Canada’s International Identity

ABSTRACT

This article examines the construction of Canada’s postwar international identity and how that identity continues to influence Canadian foreign policy, especially with the United States. Furthermore, the article illustrates how changes in Canadian policy necessitated by the Trump Administration may impact Canada’s international identity in the future. The article argues Canadian policy makers have consistently constructed an international identity in opposition to the United States and continue to use the US as a reflective tool in shaping their own policy. The first part of the article briefly examines the concept of state identity outlining both type and role variants and their relevance to foreign policy and this is followed in the second part by a discussion of Canada’s postwar international identity.     

Leaving on a Jet Plane: Polarization,Foreign Travel,and Comity in Congress

No political observer, politician, or political scientist doubts that party polarization has weakened the social fabric of Congress. Measuring that effect, however, is exceedingly difficult. In this article, we operationalize the congressional social fabric by examining the foreign travel behavior of members of Congress over time. We evaluate the social disintegration in Congress by examining if and whether changes in member travel can explain why the social connectedness of members has waned. Using a unique dataset of foreign travel for House members from 1977 to 2012, we find that Republican House members, in particular, have altered their foreign travel patterns. Ideologically extreme members have always been less likely to take foreign trips, but extremely conservative Republican have become much more likely to travel only with co-partisans as polarization has increased in Congress. Ideologically moderate Republicans, while still traveling as members of bipartisan delegations, have also increased their willingness to travel only with fellow Republicans. Our results suggest that bipartisan foreign travel is a victim of the partisan war waging in Congress.     

District Voter Turnout and Dyadic Representation in Congress

One of the most important tools by which citizens can influence their elected officials' behavior is through voting—the electoral connection. Previous studies demonstrate that the opinions of voters are better represented than the opinions of nonvoters within an electoral jurisdiction, but we do not know whether jurisdictions with higher levels of aggregate voter turnout are better represented by their elected officials compared to those with lower levels of turnout. Using data compiled across five congressional sessions (2003–2013), this article investigates whether congressional districts with higher voter turnout are better represented by their member of Congress (MC). We find evidence that district voter turnout positively conditions the relationship between district opinion and MC voting behavior even after accounting for the possible effects of electoral competition and district income and racial demographics. In addition, we uncover evidence that partisan differences exist in this conditioning effect such that higher voter turnout enhances roll call voting responsiveness among Democratic MCs but not among Republican MCs. These findings suggest that congressional districts as a whole benefit from a political responsiveness standpoint when more of their constituents turn out to vote and contribute to literatures on political representation, political participation, democratic accountability, and the U.S. Congress.     

Passing Nonincremental Policy: Presidential Influence in Congress,Kennedy to Carter

This article represents an important step in understanding early, modern presidents’ strategic use of signing statements by taking a sharp focus on the presidency of Dwight D. Eisenhower. In contrast to recent presidents who have used the instrument increasingly to challenge legislative provisions, Eisenhower's use of signing statements was rather complex—from political credit-claiming, explaining the provisions of bills to the American public, and reinforcing his views on the federal-state balance of power—to maintaining bipartisan relations on foreign policy, shaping implementation of congressional bills, and selectively criticizing Congress for overspending. The theoretical framework devotes particular attention to the interplay of contexts—electoral, institutional, and economic—on Eisenhower's use of signing statements by policy area across his two terms.     

Gender and Patterns of Roll Call Voting in the U.S. Senate

Previous studies of gender and representation at the state legislative level and in the U.S. House of Representatives have shown that women tend to be more liberal than their male colleagues and are more likely to support women's issues. Because of the limited presence of women in the body over the years, there is scant empirical evidence to confirm whether this pattern is present in the U.S. Senate. Sound theoretical basis indicates that the institutional rules of the Senate, the Senate's individualistic culture, the Senate's six-year election timetable, and the national profile of U.S. senators may create conditions that allow gender differences in roll call voting to be more easily detected than is possible in more rigidly structured institutions such as the U.S. House. This study employs a longitudinal design that pools roll call voting data from the 103rd Congress through the 110th Congress to determine whether female senators compile substantively different policy records than their male colleagues. The results indicate that gender does systematically influence roll call voting patterns in the Senate. However, it is largely a function of female Republicans voting in a less conservative fashion than male Republicans on the basic left-right policy space and on a smaller set of issues of importance to women.     

Woodrow Wilson's Congressional Government and the Modern Congress: The "Universal Principle" of Change

In Congressional Government Woodrow Wilson analyzes change in Congress during its first century of development. This essay argues that Wilson's analysis of the 19th century Congress, which explains congressional behavior as an outgrowth of both institutional and societal forces, provides a more useful interpretation of change than the institutionalist perspective dominant in the specialized studies of the modern Congress. The essay illustrates the value of Wilson's analysis to contemporary scholars by tracing its impact on the evolution of the author's interpretation of the congressional reforms and changes of the 1970s. The essay attributes the continuing value of Congressional Government to its broad and unified portrait of Congress as a whole.     

Presidential Signing Statements and the Durability of the Law

Prior literature suggests that presidents use signing statements to unilaterally move policy closer to their own ideal point after Congress has already voted on and passed a particular bill. Congress, however, retains the ability to revisit and amend the law by passing another bill. A presidential signing statement may thus make a law less durable and more likely to be amended in the future. To investigate this relationship, we examine all laws passed from the 95th through the 108th Congresses in order to demonstrate the specific influence of presidential signing statements on future congressional amendment activity. The results of our analysis lend support to the theory that laws receiving presidential signing statements are in fact more likely to be revisited and revised by Congress. These findings add to the literature both on presidential signing statements as well as the evolution of laws.