The creation of temporary, independent advisory bodies that give advice to Congress, is an important yet under-investigated area of congressional delegation. With variations to fit the circumstances, lawmakers entrust commissions to accomplish diverse goals, such as coping with increases in the scope and complexity of legislation, forging consensus, drafting legislation, finessing institutional obstacles, coordinating strategy, and promoting party unity.

Campbell investigates why and when Congress formulates policy by commissions rather than by the normal legislative process....