On the other hand, it is to this organization that we owe some of the bad lawmaking for which our legislatures are blamed.  It tends to remove legislation from the control of the people, and results in what is often called “invisible government,” government that is carried on out of sight of the people.  It opens a door to partisan influences and to control by political “bosses” and self-seeking “interests.”  In the lower house the committees are appointed by the speaker, who is the presiding officer, and who is always chosen by the members of the majority party in the house from their own number.  The senate committees are sometimes appointed by the presiding officer of the senate, who is often the lieutenant-governor, and sometimes elected by the senate itself.  But the chairmen and the majority of the members of all committees in both houses belong to the majority party, which is thus enabled to control legislation for partisan ends if it so desires, and it often does so.

EVILS OF THE SYSTEM

Bills may be “killed” in committee, or reported unfavorably, or so amended as to change their meaning entirely, merely at the will of the party leaders, or of “bosses” and interests outside of the legislature.  A large part of the work of the committees is carried on in secret.  Although “hearings” may be held at which citizens may present arguments for and against proposed measures, these may be mere matters of form.  Influential interests may maintain a lobby at the legislature, which means that they are represented there by agents who seek to influence the members of the legislature, and especially of the committees, sometimes by corrupt methods.  The lobby often works by secret methods, whereas the “hearings” are public.

The party leaders in control, of whom the most important are the speaker of the house, the rules committee, the chairmen of committees, and the “floor manager,” by dictating the procedure to be followed, may at times make it practically impossible for a member of the minority party, or one who has incurred the displeasure of the leaders, to gain a hearing.  The following description gives an idea of what may happen:  [Footnote:  From a pamphlet issued by the Illinois Legislative Voters’ League in 1903, and quoted by C. A. Beard, American Government and Politics, pp 539, 540.]

Consider the petty annoyances to which a decent member outside the “organization” may be subjected, and the methods by which legitimate legislation, backed by him, may be blocked.  The bill goes to an unfriendly committee.  The chairman refuses to call the committee together, or when forced to call it, a quorum does not attend. ...  Action may be postponed on various pretexts, or the bill may be referred to a sub-committee.  The committee may kill the bill by laying it on the table.  On the other hand, the committee may decide that the bill be reported to the house to pass.