Abstract

This analysis examines initiatorsof specific issues within one large and encompassingpolicy domain in Congress, agriculture. The data arefrom an extensive survey of congressional members andstaff from stratified random samples of 113 individualoffices. One purpose is to determine differences betweenmembers with an agenda of new issues and those whobehave as maintainers of existing policy. The analysisalso finds that the circumstances of a postreformCongress enhance the importance of district effects onissue selection. These effects create substantiallymore congressional players within the domain thanwould be expected in much of the literature. Moreover,the behavior of these issue initiators seems largelydetermined by identifiable characteristics of theirhome-district populations. Those and other findings,especially the high rate of initiator success, callinto serious question many existing assumptions aboutexclusivity and specialization in committeedeliberations. It suggests instead that home-stylebehavior comes to Washington politics in ways thatexpand significantly the range of policy players