1	The Rise of the Washington Establishment Morris P. Fiorina I assume that the primary goal of the typical congressman is reelection. Over and above the [six-figure] salary plus "perks" and outside money, the office of congressman carries with it prestige, excitement, and power.
2	The Reelection Incentive [A seat in Congress] is a seat in the cockpit of government. But in order to retain the status, excitement, and power (not to mention more tangible things) of office, the congressman must win reelection every two years.
3	What About The Bureaucrats? Most bureaucrats wish to protect and nurture their agencies. The typical bureaucrat can be expected to seek to expand his agency in terms of personnel, budget, and mission. One's status in Washington (again, not to mention more tangible things) is roughly proportional to the importance of the operation one oversees. And the sheer size of the operation is taken to be a measure of importance.
4	And What Of The Third Element In The Equation, Us? What do we, the voters who support the Washington system, strive for? Each of us wishes to receive a maximum of benefits from government for the minimum cost. This goal suggests maximum government efficiency, on the one hand, but it also suggests mutual exploitation on the other. Each of us favors an arrangement in which our fellow citizens pay for our benefits.
5	Tammany Hall Goes to Washington What should we expect from a legislative body composed of individuals whose first priority is their continued tenure in office? We should expect, first, that the normal activities of its members are those calculated to enhance their chances of reelection. And we should expect, second, that the members would devise and maintain institutional arrangements which facilitate their electoral activities
6	Congressional Activities For most of the twentieth century, congressmen have engaged in a mix of three kinds of activities: lawmaking, pork barreling, and casework. Congress is first and foremost a lawmaking body, at least according to constitutional theory.
7	Law-Making Abetted by political scientists of the pluralist school, politicians have propounded an ideology which maintains that the good of the country on any given issue is simply what is best for a majority of congressional districts. This ideology provides a philosophical justification for what congressmen do while acting in their own self-interest.
8	Pork Barrelinig A second activity favored by congressmen consists of efforts to bring home the bacon to their districts The average constituent may have some trouble translating his congressman's vote on some civil rights issue into a change in his personal welfare. But the workers hired and supplies purchased in connection with a big federal project provide benefits that are widely appreciated [and will translate into votes for Congressmen].
9	House Rules Support Pork Barreling [The House] accords certain classes of legislation "privileged" status: they may come directly to the floor without passing through the Rules Committee, a traditional graveyard for legislation. What kinds of legislation are privileged? Taxing and spending bills, for one: the government's power to raise and spend money must be kept relatively unfettered. But in addition, the omnibus rivers and harbors bills of the Public Works Committee and public lands bills from the Interior Committee share privileged status.
10	Congressional Casework A third major activity takes up perhaps as much time as the other two combined. Traditionally, constituents appeal to their congressman for myriad favors and services. Sometimes only information is needed, but often constituents request that their congressman intervene in the internal workings of federal agencies to affect a decision in a favorable way, to reverse an adverse decision, or simply to speed up the glacial bureaucratic process.
11	Power to Influence Bureaucrats Actually congressmen are in an almost unique position in our system, a position shared only with high-level members of the executive branch. Congressmen possess the power to expedite and influence bureaucratic decisions.
12	Congressional Un-Sticking Services [The power to influence bureaucrats] flows directly from congressional control over what bureaucrats value most: higher budgets and new program authorizations. In a very real sense each congressman is a monopoly supplier of bureaucratic un-sticking services for his district.
13	Pork Barreling and Casework Advance Reelection Law-making is controversial, casework and pork barreling are not. New federal projects bring jobs, shiny new facilities, and general economic prosperity, or so people believe. Snipping ribbons at the dedication of a new post office or dam is a much more pleasant pursuit than disposing of a constitutional amendment on abortion.
14	Congressional Incentive To Expand The Bureaucracy Everyday decisions by a large and growing federal bureaucracy bestow significant tangible benefits and impose significant tangible costs. Congressmen can affect these decisions. Ergo, the more decisions the bureaucracy has the opportunity to make, the more opportunities there are for the congressman to build up credits.
15	Expanded Federal Role Expands Casework and Pork Barreling In addition to greatly increased casework, let us not forget that the growth of the federal role has also greatly expanded the federal pork barrel. The creative pork barreler need not limit himself to dams and post offices--rather old-fashioned interests. Today, creative congressmen can cadge LEAA money for the local police, urban renewal and housing money for local politicians, educational program grants for the local education bureaucracy.