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Congress often attaches limitation riders to appropriations bills to establish its policy directives. Professor Devins argues that the appropriations process is not the proper vehicle for substantive policymaking. In this article, he analyzes institutional characteristics that prevent the full consideration or articulation of policy in appropriations bills. Professor Devins also considers the extent to which Congress's use of limitation riders inhibits the effectiveness of the other branches of the federal government. Professor Devin concludes that, while Congress's use of limitation riders is sometimes necessary, Congress should be aware of the significant risks associated with policymaking through the appropriations process. Over the past decade, Congress has increasingly relied on the appropriations process to establish its policy directives.' Congressional oversight of the executive and independent agencies, as well as substantive policy initiatives, are often the product of funding decisions and so-called limitation riders2 attached to appropriations bills. Indeed, some of Congress's most controversial policy directives result from the appropriations process. In 1986, for example, Congress threatened to cut off funds to Office of Management and Budget (OMB) regulatory review operations, pressuring OMB into modifying its highly controversial practice of subjecting proposed regulations to a cost-benefit analysis. 3 Congress also

Regulation of Government Agencies Through Limitation Riders