The study of state legislative change is dominated by concerns with the development of professional legislatures, but do the components of a professional legislature develop in the sameway? If not, what accounts for change in state legislative institutions? We separate legislative staff from the larger concept of professionalism and offer a theory that explains staff development and its impact on both legislative activity and conflict with the governor. We demonstrate that staff size and organizational structure respond to internal and external competitive pressures and they in turn have an affect on the larger policy environment separate from professionalism.
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