From Wild Horses to Work Horses: Electoral System Reform and Legislative Entrepreneurship in the House of Representatives

The portrait of the modern member of Congress as an entrepreneur operating independently of party organizations is well-established in congressional scholarship. Under a candidate-centered system of electoral politics in place since the early 20th century, congressional candidates are responsible for organizing their campaigns, raising money and crafting a message to appeal to voters (Jacobson 2000). Once in Congress, retaining a strong base of electoral support for future reelection contests becomes the overriding motivation shaping members’ behavior. While national issues and presidential performance might enhance or injure the electoral prospects of some (Jacobson and Kernell 1981), candidates believe and scholars agree that their ability to win election to Congress and stay there depends mainly on their own efforts. As Mayhew (1974) argues, the organization of the modern Congress provides members with ample opportunities to build a base of support that is substantially independent of party. Scholars have documented how members tailor their roll-call voting record to the views of constituents, interest groups and other supporters (Kingdon 1973), and use floor remarks or speeches inserted into the Congressional Record to engage in position-taking (Maltzman and Sigelman 1996). Until the House curtailed the practice in 1991, unlimited franking privilege