Chief Administrative Officer of the House: History and Organization

Chief Administrative Officer of the House:

History and Organization

-name redactedAnalyst on the Congress

February 2, 2011

Congressional Research Service

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Chief Administrative Officer of the House: History and Organization

Summary

The Chief Administrative Officer of the House of Representatives (CAO) is an elected officer of

the House, chosen at the beginning of each Congress. The office of the CAO consists of three

divisions: the immediate office of the CAO, operations, and customer solutions. Together, these

divisions oversee human resources, financial services, technology infrastructure, procurement,

facilities management, and other House support functions. An office initially created at the

beginning the 104th Congress (1995-1996), the CAO assumed the duties previously performed by

the Director of Non-Legislative and Financial Services, and manages the operations of other

House administrative offices and support services.

Congressional Research Service

Chief Administrative Officer of the House: History and Organization

Contents

Introduction ................................................................................................................................1

History of the Chief Administrative Officer .................................................................................1

Director of Non-Legislative and Financial Services ...............................................................1

Chief Administrative Officer .................................................................................................2

Appointment Process ......................................................................................................3

Interim Chief Administrative Officers .............................................................................3

Structure of the CAO’s Office .....................................................................................................4

Immediate Office ..................................................................................................................4

Operations ............................................................................................................................4

Customer Solutions ...............................................................................................................5

Green the Capitol ..................................................................................................................6

Tables

Table A-1. Directors of Non-Legislative and Financial Services and Chief Administrative

Officers of the House of Representatives ..................................................................................7

Appendixes

Appendix. Directors of Non-Legislative and Financial Services and Chief Administrative

Officers of the House of Representatives ..................................................................................7

Contacts

Author Contact Information ........................................................................................................8

Congressional Research Service

Chief Administrative Officer of the House: History and Organization

Introduction

The Chief Administrative Officer of the House of Representatives (CAO) is an elected officer of

the House. Elected at the beginning of each Congress with the slate of officers nominated by the

majority party, the CAO’s term coincides with the dates of that Congress. Initially created in the

104th Congress (1995-1996) to replace the appointed Director of Non-Legislative and Financial

Services, the CAO oversees human resources, financial services, technology infrastructure,

procurement, facilities management, and other support functions for the House of

Representatives. The CAO’s portfolio complements the legislative operations of the Clerk of the

House and the security functions of the Sergeant at Arms. 1

History of the Chief Administrative Officer

Consolidation of administrative functions of the House under the direction of a single individual

began with the creation of the appointed position of Director of Non-Legislative and Financial

Services in the 102nd Congress (1991-1992). Following the change in majority party from

Democratic to Republican, the House in the 104th Congress (1995-1996) abolished the position of

Director of Non-Legislative and Financial Services and created an elected position of Chief

Administrative Officer of the House to assume his duties.

Director of Non-Legislative and Financial Services

In the 102nd Congress (1991-1992), Representative Richard Gephardt introduced H.Res. 423, the

House Administrative Reform Resolution of 1992.2 Among other provisions, H.Res. 423 created

the Director of Non-Legislative and Financial Services who was “charged with running the daily

nonlegislative and financial operations of the House.”3 In debate on the resolution, Representative

Gephardt summarized the role the director could play in the operation of the House.

The Director is to be jointly appointed by the Speaker, the majority leader and the minority

leader, and that individual must have extensive management and financial experience.

Under the resolution, the Director, subject to policy direction and oversight of the House

Administration Committee, would ultimately receive responsibility for the finance office,

inside mail and internal mail operations, House information systems, office furnishings,

office supply, office systems management, typewriter, the House restaurant system,

telecommunications and telephone exchange, the barber shop and beauty shop, the nonlegislative functions of printing services, the recording studio, and the records and

1

For more information on the Clerk of the House, see CRS Report 98-761, Clerk of the House: Legislative and

Administrative Duties, by (name redacted). For more information on the House Sergeant at Arms, see CRS Report 98835, House Sergeant at Arms: Legislative and Administrative Duties, by (name redacted). For more information on

House officers in general, see CRS Report 98-401, House Administrative Officers and Officials, by (name redacted)

and CRS Report RL33220, Support Offices in the House of Representatives: Roles and Authorities, by (name redacted).

2

“Public Bills and Resolutions,” Congressional Record, vol. 138, part 6 (April 8,1992), p. 8525.

3

Rep. John Moakley, “Providing for Consideration of House Resolutions 423, House Administration Reform Act of

1992,” remarks in the House, Congressional Record, vol. 138, part 7 (April 9, 1992), p. 9030.

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registration office, the office of photography, the guide service, and the House child care

center.4

Following debate, the House agreed to H.Res. 423 by a vote of 269 to 81. The resolution

amended the Rules of the House to create Rule LII establishing the Director of Non-Legislative

and Financial Services and defining the Director’s authority over administrative and financial

functions of the House. 5 In January 1993, the rule governing the Director of Non-Legislative and

Financial Services was incorporated into to Rule VI with the adoption of the rules for the 103rd

Congress (1993-1994).6

The first Director of Non-Legislative and Financial Services, Lt. Gen. Leonard P. Wishart, III

(ret.), was jointly appointed by the Speaker, the majority leader, and the minority leader on

October 23, 1992.7

Chief Administrative Officer

In the 104th Congress (1995-1996), as part of the rules package agreed to on January 5, 1995, the

House abolished the appointed Director of Non-Legislative and Financial Services position and

created a new officer of the House, the Chief Administrative Officer (CAO).8 Elected by the

House, the CAO provides infrastructure and support for House member and committee

operations. The support provided includes managing employee payroll, benefits, child care,

parking, dining services, and installing furniture in member offices. 9 The Committee on House

Administration provides “oversight of the ... Chief Administrative Officer.”10

Limited discussion of the creation of the CAO position took place in the debate on the Rules of

the House (H.Res. 6) for the 104th Congress (1995-1996). Representative Ben Cardin advocated

for appointing, not electing, the CAO to ensure the position remained bipartisan and outside of

politics.

4

Rep. Richard Gephardt, “Providing for Consideration of House Resolutions 423, House Administration Reform Act

of 1992,” remarks in the House, Congressional Record, vol. 138, part 7 (April 9, 1992), p. 9041.

5

U.S. Congress, House, “Rule VI, clause 1,” U.S. Congress, House, Constitution, Jefferson’s Manual, and Rules of the

House of Representatives of the United States One Hundred Third Congress, prepared by Wm. Holmes Brown,

Parliamentarian, 102nd Cong., 2nd sess., H.Doc. 102-405 (Washington: GPO, 1993), § 654. The Committee on House

Administration provides oversight for the CAO.

6

“Rules of the House,” Congressional Record, vol. 139, part 1 (January 5, 1993), p. 49.

7

“Appointments by the Speaker After Sine Die Adjournment,” Congressional Record, vol. 138, part 23 (October 9,

1992), p. 34802.

8

“Rules of the House,” Congressional Record, vol. 141, part 1 (January 5, 1995), p. 463. Additionally, H.Res. 6

abolished the position of Doorkeeper of the House and transferred some of this officer’s functions to the new CAO.

The Doorkeeper was responsible for certain administrative functions, including having “custody of all the furniture,

books, and public property in the committee and other rooms.” (U.S. Congress, House, Hind’s Precedents of the House

of Representatives of the United States, Volume 1, prepared by Asher C. Hinds, 59th Cong., 2nd sess. (Washington:

GPO, 1907), § 262. Other of the Doorkeeper’s functions were transferred to the Sergeant at Arms and the Clerk of the

House.

9

U.S. Congress, House Chief Administrative Officer, “What We Do,” Chief Administrative Office of the House of

Representatives, http://cao.house.gov/what.shtml.

10

U.S. Congress, House, “Rule II, cl. 4(a), (b), and (c), and Rule X, cl. 4(d)(1)(A),” Constitution, Jefferson’s Manual,

and Rules of the House of Representatives of the United States, One Hundred Eleventh Congress, prepared by John V.

Sullivan, Parliamentarian, 110th Cong., 2nd sess., H.Doc. 110-162 (Washington: GPO, 2007) §§ 661-664 and 750-752.

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Chief Administrative Officer of the House: History and Organization

…[W]here a partisan Chief Administrative Officer will replace a nonpartisan Chief

Administrative Officer will replace a nonpartisan Director of Financial and Non-Legislative

Services. Many of us on both sides of the aisle have been working for less partisanism [sic],

particularly in the administration of the House of Representatives. It was the Republicans

who worked with us to develop the Director of Financial and Non-Legislative Services,

being approved by both the majority and minority, reporting to a committee composed of

equal numbers of Democrats and Republicans. What happens under this particular bill? That

office is abolished and replaced with a partisan Chief Administrative Officer. A few months

ago the Republicans favored bipartisanism in administration to avoid the abuse of power by

any one party. Now, just a few months later, we see a complete reversal.11

Appointment Process

As an elected official of the House, the CAO is elected by House members on the first day of a

new Congress. In general, the majority party introduces a resolution to elect the officers of the

House, including the CAO. The slate of candidates is often chosen by the majority party

leadership, sometimes with consultation with the minority. After the resolution’s introduction, the

minority party typically offers an amendment to nominate their own slate of candidates for office.

The vote to agree to the resolution is generally a party line vote. 12

Interim Chief Administrative Officers

In two cases, the Speaker has named an interim CAO following the resignation of the elected

official. The first instance occurred in the 105th Congress (1997-1998) when Speaker Newt

Gingrich, pursuant to his authority under 2 U.S.C. § 75a-1(a),13 appointed Jeff Trandahl “to act as

and to exercise temporarily the duties of the Chief Administrative Officer of the House of

Representatives.”14

11

Rep. Ben Cardin, “Rules of the House,” remarks in the House, Congressional Record, daily edition, vol. 141

(January 4, 1995), p. H83.

12

For example, see the debate on the election of officers to the 112th Congress (2011-2012). Representative Jeb

Hensarling introduced H.Res. 1 with the slate of majority candidates for the Clerk of the House, the Sergeant at Arms,

the Chaplain, and the Chief Administrative Officer. Representative John Larson, after requesting that the question be

divided for a separate vote on the Chaplain, offered an amendment, in the nature of a substitute, with a slate of minority

candidates. The amendment was rejected and the House agreed to H.Res. 1, electing the majority candidates (“Election

of Clerk of the House, Sergeant at Arms, Chief Administrative Officer and Chaplain,” Congressional Record, daily

edition, vol. 157 (January 5, 2011), p. H6. Additionally, the minority will sometimes nominate staff members as

candidates for House officers. Pursuant to House Rule IV, clause 2 and clause 4, “minority employees nominated as

elected officers of the House” have floor privileges during the current and all future Congresses. For more information,

see U.S. Congress, House, “Rule IV, clause 2 and 4,” Constitution, Jefferson’s Manual, and Rules of the House of

Representatives One Hundred Eleventh Congress, prepared by John V. Sullivan, Parliamentarian, 110th Cong., 2nd

sess., H.Doc. 110-162 (Washington: GPO, 2009), §678 and § 680.

13

2 U.S.C. § 75a-1(a) provides that, “In case of a vacancy, from whatever cause, in the office of Clerk, Sergeant at

Arms, Chief Administrative Officer or Chaplain, of the House of Representatives, or in case of the incapacity or

inability of the incumbent of any such office to perform the duties thereof, the Speaker of the House of Representatives

may appoint a person to act as, and to exercise temporarily the duties of, Clerk, Sergeant at Arms, Chief Administrative

Officer or Chaplain, as the case may be, until a person is chosen by the House of Representatives and duly qualifies as

Clerk, Sergeant at Arms, Chief Administrative Officer or Chaplain, as the case may be, or until the termination of the

incapacity or inability of the incumbent.” The Chief Administrative Officer was added to this provision in the 104th

Congress (1995-1996) [P.L. 104-186, 110 Stat. 1733, August 20, 1996].

14

Rep. Newt Gingrich, “Appointment of Temporary Chief Administrative Officer of House of Representatives,”

Congressional Record, vol. 143, part 1 (January 9, 1997), p. 279.

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Chief Administrative Officer of the House: History and Organization

The second instance occurred on July 15, 2010, following the resignation of CAO Daniel Beard.15

Speaker Nancy Pelosi used her authority pursuant to 2 U.S.C. § 75a-1(a) to appoint Daniel J.

Strodel as interim CAO, effective July 18, 2010.16 The appointment for an interim CAO lasts until

the House elects a replacement. 17

Structure of the CAO’s Office

The CAO’s office supervises the non-legislative functions of the House of Representatives. CAO

office divisions are organized along operational and mission lines that include the immediate

office of the CAO, operations, and customer solutions.18

Immediate Office

The immediate office includes the office of the chief administrative officer and his support staff.

It is responsible for oversight of the operations and customer solutions divisions and directing

studies ordered by the House leadership. The immediate office also supervises the management of

the three House media galleries,19 which provide facilities for press coverage of the House; assists

members of Congress and staff with the distribution of press releases;20 issues the CAO’s semiannual report on the office’s activities and accomplishments;21 and issues the “Statement of

Disbursements of the House.”22 The immediate office also maintains a public website,

http://cao.house.gov.

Operations

Operations is responsible for developing and maintaining facilities and systems that are used by

the House of Representatives, including financial management, procurement, technology, and

human resources. In addition, operations staff serve as consultants to members’ offices on their

internal operations and systems. Operations is divided into four groups:

15

Rep. Nancy Pelosi, “Resignation of Chief Administrative Officer,” Congressional Record, daily edition, vol. 156

(July 15, 2010), p. H5656.

16

Rep. Nancy Pelosi, “Appointment of Temporary Chief Administrative Officer,” Congressional Record, daily edition,

vol. 156 (July 15, 2010), p. H5656. Mr. Beard resigned effective July 18, 2010.

17

2 U.S.C. § 75a-1(a).

18

Telephone conversation between the author and the office of the Chief Administrative Officer of the House,

September 10, 2007.

19

The media galleries consist of the daily press gallery, the periodical press gallery, and the radio and television

correspondents gallery.

20

“Media Resources—United States House of Representatives, 112th Congress-1st Session,” http://www.house.gov/

house/mediagallery.shtml.

21

U.S. Congress, House, “Rule II, cl. 4(b),” Constitution, Jefferson’s Manual, and Rules of the House of

Representatives of the United States, One Hundred Eleventh Congress, prepared by John V. Sullivan, Parliamentarian,

110th Cong., 2nd sess., H.Doc. 110-162 (Washington: GPO, 2007) § 662.

22

For example, see U.S. Congress, House, Statement of Disbursements of the House as compiled by the Chief

Administrative Officer from October 1, 2008 to December 31, 2008, 111th Cong., 1st sess., H.Doc. 111-10

(Washington: GPO, 2009) and U.S. Congress, House, “Statements of Disbursements,” http://disbursements.house.gov.

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Chief Administrative Officer of the House: History and Organization

•

Administration and Financial Services, handling procurement, financial

counseling, payroll and benefits, budget management, resources management,

human resources, and workplace safety;

•

Workforce Services, handling employee and organizational development,

employee assistance, the House learning center, and House child care;

•

House Information Resources, handling technology support, technology

infrastructure, business solutions, web solutions, facilities management,

informational security, and systems engineering; and

•

Immediate Operations Office, handling business continuity and disaster recovery,

business improvement, portfolio management, and committee hearing rooms

renovation.23

In addition, operations manages projects that affect all House employees. These include

improving payroll and benefit services, introducing new financial and purchasing systems,

upgrading “HouseNet,”24 and updating the House messaging system.

Customer Solutions

Customer Solutions is responsible for facilitating the daily work of congressional staff members

through the CAO Customer Solutions Center (CCSC), which includes the CAO call center,

FirstCall+.25 Customer Solutions is divided into three groups:

•

Customer Solutions Delivery, handling the CCSC, the House recording studio,

the office supply store, the House gift shop, and photography;

•

Assets, Furnishings and Logistics, handling acquisition, payments, equipment

maintenance, equipment inventory management, warehousing, carpet, drapes,

upholstery, cabinetry, finishing, and modular furniture;26 and

•

Immediate Customer Solutions Office, handling the disbursement of House

resources and supplies and the management of customer relationships.27

Customer Solutions is also responsible for office renovations and moving members of the House

and their staff to new offices. This responsibility includes holding equipment fairs to demonstrate

new technology and products, and service fairs to highlight support offices, including the

23

U.S. Congress, House Chief Administrative Officer, “Operations,” CAO Semi-Annual Report, 110th Cong., 1st sess.

http://cao.house.gov/report/cao-ops.shtml.

24

HouseNet, http://housenet.house.gov, is the House of Representatives’ intranet site supported by the CAO and is

available only to House offices.

25

FirstCall+ consists of a call-in phone number (202-225-8000) and a walk-in customer service center (B-227

Longworth House Office Building). FirstCall+ is designed to answer member and committee offices’ questions on

ordering, acquisition, and production.

26

The CAO works with the General Services Administration’s (GSA) congressional service representatives to

coordinate office space and furnishings for district offices. See U.S. General Service Administration, “Congressional

Support Services,” http://www.gsa.gov/portal/content/100839; and (name redacted) and (name redacted),

Congressional Deskbook 2005-2007 109th Congress (Alexandria, VA: TheCapitol.Net, 2005), p. 131.

27

U.S. Congress, House Chief Administrative Officer, “Customer Solutions,” CAO Semi-Annual Report, 110th Cong.,

st

1 sess. http://cao.house.gov/report/cao-cs.shtml.

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Architect of the Capitol, the Library of Congress (including the Congressional Research Service),

the Clerk of the House, and the Sergeant at Arms.

Green the Capitol

In March 2007, Speaker Nancy Pelosi, Majority Leader Steny Hoyer, and the then chair of the

Committee on House Administration, the late Juanita Millender-McDonald, asked CAO Daniel

Beard and his Senate counterparts to “undertake a ‘Green the Capitol’ initiative to ensure that the

House institutes the most up-to-date industry and government standards for green building and

green operating procedures.”28 Since 2007, the “Green the Capitol” initiative has worked to

reduce the carbon footprint of the House through numerous programs including my green office,

installing low VOC (volatile organic compounds) carpets in House offices, purchasing renewable

electricity, using green cleaning products, and working with House food service vendor

Restaurant Associates to use locally sourced food and biodegradable containers and utensils in the

cafeterias.29

28

U.S. Congress, Speaker of the House of Representatives, “House Democrats Urge Greening of Capitol Complex,”

press release, March 2, 2007, http://www.speaker.gov/newsroom/pressreleases?id=0082.

29

For more information on the “Green the Capitol” initiative, see CRS Report RL34694, Administering Green

Programs in Congress: Issues and Options, by (name redacted).

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Appendix. Directors of Non-Legislative and

Financial Services and Chief Administrative

Officers of the House of Representatives

Since the creation of the office of the Director of Non-Legislative and Financial Services in the

102nd Congress (1991-1992), seven individuals have served as either the Director or as CAO of

the House on a temporary or permanent basis. Table A-1 provides a list of Directors and CAOs,

including the Congress in which they served, and the date of their appointment or election.

Table A-1. Directors of Non-Legislative and Financial Services and Chief

Administrative Officers of the House of Representatives

Congress

Director of Non-Legislative and Financial Services

Date Appointeda

102nd (1991-1992)

Leonard P. Wishart, III

October 9, 1992b

103rd (1993-1994)

Leonard P. Wishart, III

January 5, 1993c

Randall B. Medlock

January 1994d

Congress

104th (1995-1996)

Chief Administrative Officer

Date Elected

Scott M. Faulkner

January 4, 1995e

Jeff Trandahl

November 22, 1996f

Jeff Trandahl

January 9, 1997g

James M. Eagen, III

July 31, 1997h

106th (1999-2000)

James M. Eagen, III

January 6, 1999i

107th (2001-2002)

James M. Eagen, III

January 3, 2001j

108th (2003-2004)

James M. Eagen, III

January 7, 2003k

109th (2005-2006)

James M. Eagen, III

January 4, 2005l

110th (2007-2008)

James M. Eagen, III

January 4, 2007m

Daniel P. Beard

February 6, 2007n

Daniel P. Beard

January 6, 2007o

Daniel J. Strodel

July 18, 2010p

Daniel J. Strodel

January 6, 2011q

105th (1997-1998)

111th (2009-2010)

112th (2011-2012)

Source: Clerk of the House, http://clerk.house.gov/art_history/house_history/cao.html.

a.

In the 102nd Congress, H.Res. 423, “House Administrative Reform Resolution of 1992,” created the

Director of Non-Legislative and Financial Services and established his or her joint appointment by the

Speaker of the House, the majority leader, and the minority leader, pursuant to Rule LII, cl. 1.

b.

“Appointments by the Speaker After Sine Die Adjournment,” Congressional Record, vol. 138, part 23

(October 9, 1992), p. 34802.

c.

“Reappointment of Lt. Gen. Leonard P. Wishart, III (Ret.) as Director of Non-Legislative and Financial

Services of the House,” Congressional Record, vol. 139, part 1 (January 5, 1993), p. 104.

d.

A specific appointment date is not available. Randall Medlock was appointed on a temporary basis following

the resignation of Leonard Wishart effective January 21, 1994 (“Communication from Director of NonLegislative and Financial Services, House of Representatives,” Congressional Record, vol. 140, part 1 (February

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Chief Administrative Officer of the House: History and Organization

3, 1994), p. 1047). For additional information, see Congressional Quarterly Almanac, 103rd Congress, 2nd

Session, vol. L (Washington: Congressional Quarterly Inc., 1994), p. 13; and Timothy J. Burger, “Wishart

Quits Abruptly As First Director ‘He Was Fighting a War He Could Never Win,’” Roll Call, January 13,

1994.

e.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer, and Chaplain,”

Congressional Record, vol. 141, part 1(January 4, 1995), p. 447.

f.

Appointed November 22, 1996. U.S. Congress, Clerk of the House of Representatives, “Chief

Administrative Officers of the House,” http://clerk.house.gov/art_history/house_history/cao.html#ftnt5. See

also “Congressional (Speaker) Press Release,” Roll Call, November 25, 2006, p. 16.

g.

Rep. Newt Gingrich, “Appointment of Temporary Chief Administrative Officer of House of

Representatives,” Congressional Record, vol. 143, part 1 (January 9, 1997), p. 279.

h.

Elected by H.Res. 207 on July 31, 1997. “Election of Chief Administrative Officer,” Congressional Record, vol.

143, part 12 (July 31, 1997), p. 17021.

i.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer, and Chaplain,”

Congressional Record, vol. 145, part 1 (January 6, 1999), p. 46.

j.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer, and Chaplain,”

Congressional Record, vol. 147, part 1(January 3, 2001), p. 24.

k.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer, and Chaplain,”

Congressional Record, vol. 149, part 1(January 7, 2003), pp. 6-7.

l.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer, and Chaplain,”

Congressional Record, vol. 151, part 1 (January 4, 2005), pp. 41-42.

m. Resigned effective February 14, 2007. “Resignation of Chief Administrative Officer of the House of

Representatives,” Congressional Record, daily edition, vol. 153 (February 6, 2007), p. H1230.

n.

Elected by H.Res. 129 on February 6, 2007. “Electing Officers of the House of Representatives,”

Congressional Record, daily edition, vol. 153 (February 6, 2007), p. H1230.

o.

Mr. Beard resigned as CAO on July 1, 2010, effective July 18, 2010. Rep. Nancy Pelosi, “Resignation of Chief

Administrative Officer,” Congressional Record, daily edition, vol. 156 (July 15, 2010), p. H5656.

p.

Mr. Strodel was appointed on July 15, 2010, for a term effective July 18. Rep. Nancy Pelosi, “Appointment of

Temporary Chief Administrative Officer,” Congressional Record, daily edition, vol. 156 (July 15, 2010), p.

H5656.

q.

“Election of Clerk of the House, Sergeant at Arms, Chief Administrative Officer and Chaplain,” Congressional

Record, daily edition, vol. 157 (January 5, 2011), pp. H6-H7.

Author Contact Information

(name redacted)

Analyst on the Congress

[redacted]@crs.loc.g

ov, 7-....

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