Year after year, in state after state, the end-of-session crunch sets in as legislatures wade through dozens of bills within a few days or, on occasion, a few hours. This legislative logjam, says Burdett Loomis, is one very public manifestation of a hidden but crucial element within the policy making process--timing.

We tend to think of institutions in terms of structure, most commonly as committees, staffs, and information systems, says Loomis. Less obvious, but no less significant, he contends, are the ways in which time is structured-electoral deadlines, budget cycles, and legislative...