Committees in Legislatures: A Comparative
Analysis by John D. Lees and Malcolm Shaw, Duke University Press, 1979, 449 p.
Good books often provoke stimulating
questions. Sadly, Committees in Legislatures prompts one basic question: why
was such an outdated book published?
The book stems from conferences held in 1969
and 197 1, and it is evident that the papers have seen little, if any, revision
since then. Now it is unfair to expect a book published in 1979 to include
material on the important changes in Westminster's committee system stemming
from the 1978 report of the Procedure Committee. However, surely we deserve
better than an analysis of the committees of the Canadian House of Commons
which treats the 1968 reforms as experimental, and a treatment of Indian
committees written entirely prior to the 1975 "emergency", to take
only two particularly irksome examples. In a sense. the essay on committees of
the Phillipine Congress by Robert Jackson is all too symbolic of the whole
enterprise: the Congress and its committees ceased to exist in 1972 when
President Marcos declared martial law!
The great pity is that the idea behind the
book was first-rate: assemble a team of specialists to analyse the workings of
committees in eight national Legislatures: Canada, the United States, India,
Japan, West Germany, Italy, the United Kingdom and the Philippines. This would
offer the reader authoritative reviews of particular committee systems and
would also provide the basis for more analytical attempts to draw general
conclusions about legislative committees.
The eight academics and one practioner
responsible for individual chapters demonstrate a sure grasp of their subjects
and generally write well. Several of the chapters, especially those on the
United Kingdom and West Germany by S. A. Walkland and Nevil Johnson, are
particularly adept in analysing committees within the broad context of a
nation's political culture and its overall legislative setting. Perceptive as such
insights are, they represent but a small proportion of the book, the bulk of
which is given over to extensive detail on the structure and operation of the
various committee systems. Much of this material is either outdated or else is
of marginal interest to the 1980 reader. Michael Rush's piece on Canada, by way
of illustration, is heavily, based on surveys of MPs conducted in 1968 and
1970.
Although the editors did not impose a rigid
framework on their contributors, each chapter sets out the basics of the
political environment within which each committee system operates, and provides
the essential information as to committee membership, structure, influence,
staff and the like, as they were about 1970. A certain uneveness is evident in
that not all chapters discuss the same topics; the chapter on Italy, for
instance, makes no mention of committees in the control or oversight of
government finance.
The conclusion, by editor Shaw, struggles
mightily to divine patterns across the eight committee systems. He reaches few
non obvious conclusions, but is occasionally led astray by surface appearances:
"legislatures where British influence is strong give special emphasis to
finance at the committee level". Particularly disappointing is Shaw's
failure to draw upon the extensive research done into political behaviour in
small groups as an approach to understanding legislative committees.
In sum, unless one is interested in decade
old information on committees in eight legislatures, and is willing to shell
out $19.75 (U.S.) for it. this book has little to commend it.
Graham White
Assistant Clerk
Ontario Legislative Assembly