Scan the more than 250 bills introduced this term in to the US House Natural Resources Committee and the 49 members of the committee and you begin to understand how difficult it is to enact large strategic changes in policy and why Congress might spend time building target shooting facilities on public lands or in wilderness sites. Consider what states have representatives on the committee and those that do not. Earmarking or "pork" then starts to become clear: "Give you a new energy policy? Sure - give me a new pier for Santa Monica." grin/groan.