MZ /[ANY STUDENTS OF Congress have observed that, due to the increased scope and complexity of governmental activity, congressmen need expert staff assistance if they are to legislate in an informed way and retain some independence of the executive branch and its expertise.' Confronted with multifarious demands on their time, the argument goes, legislators have a difficult time mastering the intricacies of substantive policy proposals; partly as a result, many policy-making functions theoretically reserved for the legislative branch have been transferred, in fact if not always in form, to the executive. Carried out to its logical conclusion this development would appear to culminate in the suggestion made by Samuel P. Huntington that Congress give up whatever lawmaking power it still has: Explicit acceptance of the idea that legislation was not its primary function would, in large part, simply be recognition of the direction which change has already been taking. It would legitimize and expand the functions of constituent service and ad-