History of Congress and the Capitol
This is the story of one of the world's great experiments in government by the people.
For more than two centuries, a new Congress has convened every two years following elections that determine all the seats in the House and one-third of those in the Senate. While the individuals change, the institution has endured-through civil and world wars, waves of immigration and great migrations, and continuous social and technological change.
The Congress we know today was created after the failure of a government under the Articles of Confederation, which left most powers to the states. In 1787, a convention of specially selected delegates proposed a new constitution that strengthened the national government and established a representative branch composed of a House and Senate.
From the beginning, the two bodies of Congress were meant to be different, yet interdependent. James Madison said they would be "as little connected with each other, as the nature of their common functions, and their common dependence on society, will admit." As a result, the House and Senate have different rules, traditions, and cultures. Yet in their shared responsibilities they function as the nation's single lawmaking body.
After the civil war, the country faced dramatic change as a landscape of farms and villages yielded to factories and sprawling cities. An abundance of labor and plentiful raw materials brought prosperity to many, and the image of the United States as a beacon of freedom and opportunity encouraged immigration from all parts of the world. Many workers, including immigrants, racial minorities, and children, however, often toiled long hours in dangerous conditions for little pay. By the turn of the century, reformers in Congress were pressing for new ways to make government more responsive to the needs of poor farmers, laborers, and urban dwellers.
By 1912, a nation of 48 states spanned the continent and was extending its influence overseas. With 10 new states entering the Union, the number of senators increased to 96 and the number of representatives to 435. As members of Congress moved into their first permanent office buildings, congressional service was becoming an increasingly demanding full-time occupation, a major change from the 19th century, when members seldom met for more than six months in each year.
The People's Platform
In the late 19th century, industrialization and migration from countryside to cities created new groups of Americans, new constituencies. The House gave them a forum. Frequent elections and small districts made the House a place where marginal or regional interests could gain seats and make their voices heard.
In the South, however, "Jim Crow" laws enforced segregation, pushing African-Americans out of the political process. Former rebels easily captured Southern seats.
Later in the century, the House became a national stage for rural Populists. In an era when unregulated development often favored the wealthy, Populists championed farmers and laborers who felt exploited or left behind.
Changing the House
Early in this era, Democrats dominating the House continually battled a Republican president or Senate, making it difficult to achieve results. Outside observers of the House described a legislature that depended too heavily on standing committees—"little legislatures"—to provide direction and get things done. Many observers also concluded that the House was hobbled by outdated rules and procedures. By the end of the period, a series of strong Speakers had helped to streamline operations and shepherd the chamber into the 20th century.
After the Civil War, military conflict turned into political conflict. The Constitution originally had considered a slave only three-fifths of a person when calculating a state's House seats. Now, however, former slaves counted as full citizens, enabling the South to balance the North's rapid population growth. After Reconstruction, Southern states accompanied their return to national politics with a campaign of terror against African-American voters. Democrats, the party favored by white Southerners, gained control of the House. Republicans held the presidency. Partisan rivalry flared.
Many Republicans tried to protect the rights of black voters. Southern Democrats blocked these efforts, repeatedly tacking onto bills an amendment preventing the federal government from getting involved. Republican president Rutherford B. Hayes would then veto the bill. After two years of stalemate, the House Democrats finally abandoned the tactic.
"... a slow-moving giant hulk of a barge ... a form dressed completely in black, out of whose collar rose an enormous round, clean-shaven baby face." A ghost haunting the House? No, that's how a colleague described Representative Thomas Brackett Reed of Maine.
Reed revered the House, dismissing the Senate as "a place where good Representatives go when they die." During the 1880s, he complained about the inability of any House majority to act. But as Speaker, Reed foiled long-established delaying tactics by calmly ruling against members trying to stall the proceedings. Members feared Reed's quick, acid tongue in debate. His rulings once provoked a near riot on the floor, but his efforts made the Speaker once again the House's moving force and allowed the House to act.
"In my opinion there never has been a more perfectly equipped leader in any parliamentary body at any period."
— Senator Henry Cabot Lodge of Massachusetts, recalling House Speaker Thomas Reed, 1910
Many members of Congress believe that fewer laws are better. "The country don't need any legislation," was the way the colorful Joseph G. Cannon, Republican of Illinois, put it. Elected Speaker in 1903, "Uncle Joe" Cannon was among the more conservative House members. He wielded his power to stop President Theodore Roosevelt's crusade to regulate business and land use.
As conservative members retired or lost elections, however, Cannon's base of support gradually eroded. Conservative Republican control of the chamber became vulnerable to an alliance of Progressive Republicans and Democrats. In 1910, Nebraska's George W. Norris, one of the Progressive reformers, proposed new rules to curb the Speaker's power—igniting two days of nearly continuous debate. The Progressive–Democrat coalition prevailed, and many hailed Norris's resolution as a return to democracy in the House.
"The country don’t need any legislation."
— Speaker Joseph G. Cannon
After the phenomenal industrial growth of the late 1800s, reformers feared that unregulated big business would use its influence for private gain at the expense of public good.
The House, responding to these concerns, established a special investigation panel, headed by Representative Arsene Pujo of Louisiana. It summoned captains of industry and top investment bankers (the so-called Money Trust), parading them before the committee and the press. The hearings exposed corrupt ties between banks and dozens of railroads, manufacturers, and utilities. These findings provided momentum for Congress to pass much-needed reforms, including the Federal Reserve Bank Act of 1913, which created a federally regulated banking system.