Abstract
For the first time in one hundred years, the 118th Congress began with a prolonged Speaker’s race that required fifteen ballots to elect a Speaker. The contentious Republican debate displayed a level of personal animosity between a faction – the House Freedom Caucus (HFC) – and the majority party’s chosen leader – Rep. Kevin McCarthy (R-CA) – but it also revealed a series of significant divisions within the majority party over policy, and legislative norms and practices. How do different strategies shape the capacity of factions to spur formal changes to legislative institutions? How do party leaders respond to the demands of factions that raise issues threatening to party unity and their own leadership position? In this article, I analyze the composition of defectors in the Speaker’s race, the status of their rule and procedural reform agenda, and the response by McCarthy, including to committee assignments and early use of restrictive rules in the 118th Congress. I conclude with a discussion of the consequences of the HFC strategy for the contemporary U.S. House, and an emerging need to expand theories of institutional change to better integrate the behavior of both party leaders and factions.
References
Aabram, V. 2022. “House Republicans Consider First Set of Conference Rules Changes.” Washington Examiner. November 16: https://www.washingtonexaminer.com/news/house/republicans-begin-votes-rule-changes.Search in Google Scholar
Aldrich, J. 1995. Why Parties? Chicago: University of Chicago Press.Search in Google Scholar
Alexander, B. 2021. A Social Theory of Congress: Legislative Norms in the Twenty-First Century. Lanham: Lexington Books.10.5771/9781793601285Search in Google Scholar
Baer, E. 2022. “Who Sets the Agenda? Participation Asymmetries in the Select Committee on the Modernization of Congress in the 116th Congress.” PS: Political Science & Politics 55 (4): 668–76. https://doi.org/10.1017/s1049096522000610.Search in Google Scholar
Beavers, O., and S. Ferris. 2023. “McCarthy Builds a Kitchen Cabinet Ahead of Debt Showdown – without His No. 2, Scalise.” Politico. April 21: https://www.politico.com/news/2023/04/21/mccarthy-kitchen-cabinet-debt-showdown-without-scalise-00093073.Search in Google Scholar
Blake, A. 2023. “McCarthy’s Speaker Deal Takes a Bizarre Turn.” The Washington Post. May 30: https://www.washingtonpost.com/politics/2023/05/30/mccarthy-chip-roy-speaker-deal/.Search in Google Scholar
Blum, R. M. 2020. How the Tea Party Captured the GOP: Insurgent Factions in American Politics. Chicago: University of Chicago Press.10.7208/chicago/9780226687667.001.0001Search in Google Scholar
Brooks, E. 2022. “House GOP Hashes Out Internal Rules with McCarthy Speakership on the Line.” The Hill. November 16: https://thehill.com/homenews/house/3739010-house-gop-hashes-out-internal-rules-with-mccarthy-speakership-on-the-line/.Search in Google Scholar
Brufke, J., and V. Aabram. 2022. “House Republicans Vote to Keep Earmarks in Second Round of Rule Changes.” Washington Examiner. November 30: https://www.washingtonexaminer.com/news/house/republicans-approve-second-round-rule-changes.Search in Google Scholar
Caygle, H., R. Bade, and J. Bresnahan. 2019. “Pelosi Gets Revenge against One of the Dem Rebels.” Politico. January 15: https://www.politico.com/story/2019/01/15/pelosi-rice-judiciary-committee-1102772.Search in Google Scholar
Chaturvedi, N. S. 2018. “Filling the Amendment Tree: Majority Party Control, Procedures, and Polarization in the U.S. Senate.” American Politics Research 46 (4): 724–47. https://doi.org/10.1177/1532673x17744173.Search in Google Scholar
Cohen, M., D. Karol, H. Noel, and J. Zaller. 2008. The Party Decides: Presidential Nominations Before and After Reform. Chicago: University of Chicago.10.7208/chicago/9780226112381.001.0001Search in Google Scholar
Cox, G. W., and M. D. McCubbins. 1993. Legislative Leviathan. Berkeley: University of California Press.Search in Google Scholar
DeSilver, D. 2015. “Freedom Caucus Districts Look Much Like Other GOP-Held Districts.” Pew Research Center. October 22: https://www.pewresearch.org/short-reads/2015/10/22/freedom-caucus-districts-look-much-like-other-gop-held-districts/.Search in Google Scholar
DiSalvo, D. 2012. Engines of Change: Party Factions in American Politics 1869–2010. New York: Oxford University Press.10.1093/acprof:oso/9780199891702.001.0001Search in Google Scholar
Edmondson, C. 2023. “McCarthy Brought His Detractors in from the Cold. Will They Stay?” New York Times. https://www.nytimes.com/2023/04/28/us/politics/mccarthy-republicans-right-wing-debt-ceiling.html.Search in Google Scholar
Ferris, S., O. Beavers, and J. Carney. 2023. “Here’s Who McCarthy Needs to Convince for His Debt Bill.” Politico. April 23: https://www.politico.com/news/2023/04/26/republicans-mccarthy-debt-ceiling-bill-00093932.Search in Google Scholar
Foran, C., M. Raju, M. Zanona, A. Grayer, and K. Wilson. 2023. “House Adjourns for Third Day without Picking a Speaker in Longest Contest in 164 Years.” CNN. January 6: https://www.cnn.com/2023/01/05/politics/kevin-mccarthy-speaker-bid/index.html.Search in Google Scholar
French, L., and J. Sherman. 2015. “Ryan Offers Concession to House Freedom Caucus.” Politico. October 22 https://www.politico.com/story/2015/10/ryan-concessions-freedom-caucus-215075.Search in Google Scholar
Garrison, J., and E. Lee. 2023. “McCarthy, GOP Debt Limit Plan Proposes $4.5 Trillion in Cuts, Eliminates Student Loan Forgiveness.” USA Today. https://www.usatoday.com/story/news/2023/04/19/mccarthy-debt-limit-plan-default/11695574002/.Search in Google Scholar
Green, M. 2019. Legislative Hardball: The House Freedom Caucus and the Power of Threat-Making in Congress. Cambridge: Cambridge University Press.10.1017/9781108677011Search in Google Scholar
Green, M., and D. B. Harris. 2019. Choosing the Leader: Leadership Elections in the U.S. House of Representatives. New Haven: Yale University Press.10.12987/yale/9780300222579.001.0001Search in Google Scholar
Greene, M. 2021. Rules Governing House Committee and Subcommittee Assignment Procedures. Washington, D.C.: Congressional Research Service.Search in Google Scholar
Hibbing, J. R., and E. Theiss-Morse. 1995. Congress as Public Enemy: Public Attitudes toward American Political Institutions. Cambridge: Cambridge University Press.10.1017/CBO9781139174466Search in Google Scholar
Jenkins, J. A., and C. StewartIII. 2013. Fighting for the Speakership: The House and the Rise of Party Government. Princeton: Princeton University Press.10.23943/princeton/9780691118123.001.0001Search in Google Scholar
Krouse, S. 2023. “The House Speaker Drama Has One Winner: C-SPAN.” The Wall Street Journal. January 6: https://www.wsj.com/articles/the-house-speaker-drama-has-one-winner-c-span-11673017215.Search in Google Scholar
Lee, F. 2009. Beyond Ideology. Chicago: University of Chicago Press.Search in Google Scholar
Lee, F. 2016. Insecure Majorities: Congress and the Perpetual Campaign. Chicago: University of Chicago Press.10.7208/chicago/9780226409184.001.0001Search in Google Scholar
McCarthy, N., K. Poole, and H. Rosenthal. 2016. Polarized America: The Dance of Ideology and Unequal Riches, 2nd ed. Boston: MIT Press Books.Search in Google Scholar
McCubbins, M. D., and G. W. Cox. 2005. Setting the Agenda: Responsible Party Government in the U.S. House of Representatives. Cambridge: Cambridge University Press.Search in Google Scholar
McPherson, L. 2022. “Anti-McCarthy Group Vows Not to Be Picked off One-By-One.” Roll Call. December 14: https://rollcall.com/2022/12/14/anti-mccarthy-group-vows-not-to-be-picked-off-one-by-one/.Search in Google Scholar
McPherson, L. 2023. “House Adopts Rules Package for the 118th Congress.” Roll Call. January 9: https://rollcall.com/2023/01/09/house-adopts-rules-package-for-the-118th-congress/.Search in Google Scholar
Milkis, S. M., and D. J. Tichenor. 2017. Rivalry and Reform: Presidents, Social Movements, and the Transformation of American Politics. Chicago: University of Chicago Press.10.7208/chicago/9780226569420.001.0001Search in Google Scholar
Nam, R. 2023. “U.S. Hits its Debt Limit and Now Risks Defaulting on its Bills.” NPR. January 19: https://www.npr.org/2023/01/19/1150006177/debt-limit-ceiling-political-fight-janet-yellen.Search in Google Scholar
Pearson, K. 2015. Party Discipline in the U.S. House of Representatives. Ann Arbor, Michigan: University of Michigan Press.10.3998/mpub.4402299Search in Google Scholar
Picket, K. 2022. “House GOP Votes on Rules Package for New Congress.” Washington Times. November 16: https://www.washingtontimes.com/news/2022/nov/16/house-gop-votes-rules-package-new-congress/.Search in Google Scholar
Rohde, D. W. 1991. Parties and Leaders in the Post-Reform House. Chicago: University of Chicago Press.10.7208/chicago/9780226724058.001.0001Search in Google Scholar
Rubin, R. B. 2017. Building the Bloc. New York: Cambridge University Press.Search in Google Scholar
Schickler, E. 2001. Disjointed Pluralism: Institutional Innovation and the Development of the U.S. Congress. Princeton: Princeton University Press.Search in Google Scholar
Schickler, E., E. McGhee, and J. Sides. 2003. “Remaking the House and Senate: Personal Power, Ideology, and the 1970s Reforms.” Legislative Studies Quarterly 28 (3): 297–331. https://doi.org/10.3162/036298003x200908.Search in Google Scholar
Scholtes, J., and C. Emma. 2023. “House GOP Budget Chief Moves Forward after McCarthy Beef.” Politico. April 24: https://www.politico.com/news/2023/04/24/jodey-arrington-house-budget-00093278.Search in Google Scholar
Schuman, D. 2020. Who Steers the Ship? An Examination of House Steering and Policy Committee Membership. First Branch Forecast. July 20: https://firstbranchforecast.com/2020/07/20/who-steers-the-ship-an-examination-of-house-steering-and-policy-committee-membership-in-the-116th-congress/.Search in Google Scholar
Sherman, J., and J. Bresnahan. 2015. “Boehner Takes Revenge.” Politico. January 16: https://www.politico.com/story/2015/01/boehner-allies-out-for-revenge-114007.Search in Google Scholar
Sinclair, B. 2007. Unorthodox Lawmaking: New Legislative Processes in the U.S. Congress, 3rd ed. Washington: CQ Press.Search in Google Scholar
Sotomayor, M., P. Kane, and J. Mark. 2023. “McCarthy, White House Race to Woo Lawmakers to Pass Debt Ceiling Package.” New York Times. May 29: https://www.washingtonpost.com/business/2023/05/29/raising-debt-ceiling-budget-memorial-day/.Search in Google Scholar
Thompson, C. 2023. U.S. Rep. Scott Perry touts House Freedom Caucus agenda on federal debt ceiling and House rules. PennLive. April 6: https://www.pennlive.com/news/2023/04/us-rep-scott-perry-touts-house-freedom-caucus-agenda-on-federal-debt-ceiling-and-house-rules.html.Search in Google Scholar
Warren, M., and Z. Melanie. 2022. “Kevin McCarthy’s Path to Speakership Enters Final but Treacherous Leg.” CNN. January 21: https://www.cnn.com/2022/01/21/politics/kevin-mccarthy-speaker-gop-conference/index.html.Search in Google Scholar
Wright, J. 2000. “Interest Groups, Congressional Reform, and Party Government in the United States.” Legislative Studies Quarterly 25 (2): 217–35. https://doi.org/10.2307/440369.Search in Google Scholar
Zelizer, J. 2004. On Capitol Hill: The Struggle to Reform Congress and its Consequences, 1948–2000. New York: Cambridge University Press.Search in Google Scholar
© 2023 Walter de Gruyter GmbH, Berlin/Boston
Articles in the same Issue
- Frontmatter
- Introduction
- The Forum: Spring 2023 Issue Introduction
- Articles
- Speaker Nancy Pelosi: A Master of the House
- The House Freedom Caucus, Kevin McCarthy’s Race for Speaker, and the Fate of Rules Reform in the 118th Congress
- The Speaker Election in the 118th Congress: A Procedural Review
- Just How Unorthodox? Assessing Lawmaking on Omnibus Spending Bills
- The Partisan Dimensions of Earmarking in the U.S. House of Representatives
- After Dobbs: The Partisan and Gender Dynamics of Legislating on Abortion in Congress
- Disability Policy in the Contemporary Congress
- Out-of-State Donors and Nationalized Politics in U.S. Senate Elections
- Book Reviews
- Anna Gunderson: Review of Captive Markets. Accountability and State Prison Privatization
- LaGina Gause: The Advantage of Disadvantage: Costly Protest and Political Representation for Marginalized Groups
Articles in the same Issue
- Frontmatter
- Introduction
- The Forum: Spring 2023 Issue Introduction
- Articles
- Speaker Nancy Pelosi: A Master of the House
- The House Freedom Caucus, Kevin McCarthy’s Race for Speaker, and the Fate of Rules Reform in the 118th Congress
- The Speaker Election in the 118th Congress: A Procedural Review
- Just How Unorthodox? Assessing Lawmaking on Omnibus Spending Bills
- The Partisan Dimensions of Earmarking in the U.S. House of Representatives
- After Dobbs: The Partisan and Gender Dynamics of Legislating on Abortion in Congress
- Disability Policy in the Contemporary Congress
- Out-of-State Donors and Nationalized Politics in U.S. Senate Elections
- Book Reviews
- Anna Gunderson: Review of Captive Markets. Accountability and State Prison Privatization
- LaGina Gause: The Advantage of Disadvantage: Costly Protest and Political Representation for Marginalized Groups