222 KANSAS UMVERSirV OLAKJERLV. 



These estimates are based upon reports made to the Secretary by the 

 heads of the other departments. They are transmitted to Congress in 

 the shape of a letter addressed to the Speaker of the House, and are 

 then referred to the financial committees of the House. The com- 

 mittee of Ways and Means considers that part of the estimates which 

 has reference to the raising of money, and the committee on Approp- 

 riations that part which refers to the general expenditure of money. 

 The estimates are often accepted and bills framed in accordance 

 with them, but frequently the bills are entirely at variance with the 

 estimates. The committees are not even under obligation to examine 

 them. The Secretary of the Treasury has not the privilege of appear- 

 ing before the House, and can only appear before the committees 

 when invited. The jjreparation of money bills is therefore really in 

 the hands of the financial committees of the House, and their chair- 

 men may exert greater influence upon methods of raising and expend- 

 ing revenue than any other person save the Speaker of the House. 

 Thus the only official whose duty it is to balance income and 

 expenditure has power to do no more than to suggest such a course. 



In tracing a money bill through the stages usually essential before 

 it can become a law a measure proposed by any one of the great 

 committees will suftice as an illustration. ^Vhen the committee on 

 Appropriations has thoroughly digested the estimates or has made 

 out a new scheme of expenditure to suit itself, it begins to bring in 

 bills authorizing specific appropriations for the various departments. 

 If a member disapproves of the bill presented he may of course 

 introduce a bill of his own. But a rule of the House, which provides 

 that each bill must pass through the hands of its appropriate commit- 

 tee before it can come up for discussion, gives to the chairman 

 power to kill a bill by refusing to report it, unless a majority of the 

 House orders a report. Thus though theoretically each member of 

 the House has an active voice in determining taxation, practically 

 his influence is insignificant unless he is a member of an important 

 committee.''' The committee on Appropriations, then, has practically 

 the control of the appropriation of money for the expenses of govern- 

 ment. The same thing is true, in their fields, of the other committees. 

 Mr. AVoodrow 'Wilson, in his treatise on "Congressional Government,'" 

 declares our laws are enacted by committees rather than by Congress. 



When an appropriation bill has been passed by the House it is sent 

 to the Senate and there referred, without discussion, to the committee 



* When the committee on Appropriations presents a bill, the House goes into commit 

 tee of the whole where each mem tier is supposed to he privilefred to discuss or i)rop<ise 

 aineudmeiiis lo the bill. But in fact, by a custom of the House, a member cannot ^ain 

 the recofjrnitiou of the Chair to propose an amendment unless he has previ(.usly made 

 some arraufrement with the chairmau of the committee on Api)roi)riati<jns. The chair- 

 mtin of that committee is absolute master of the debate. See North American Review, 

 Vol. las, article by Senator Hoar on -The Conduct of Business in Congress." 



