According to Randall Ripley and Grace Franklin (1991), the personal relationships among policy actors can lead to either cooperation or conflict. If the actors involved in policy development cannot get along, stalemate is likely to result. Cooperative relationship need to be formed within the legislature, between the legislature and the executive branch, and with pertinent interest groups. In recent years, observers have noted that these relationships have soured. For example, Democrats and Republicans in the 104th and 105th Congresses (1995-1999) clashed repeatedly over environmental protection, regulatory reform, and many other issues.