Members, Goals, Resources, and Strategies

In today’s world, we make several reasonable assumptions about members of Congress. We assume that most of them will seek reelection, and, if they do not, it is because they are seeking another elective office or are retiring. We expect that legislators have the ability to get back to their districts and states on most weekends to attend civic functions and meet with constituents. We take for granted that legislators can communicate efficiently with constituents, resolve constituent problems, and meanwhile address the policy concerns of House districts that average about 711,000 people and states that average more than 6 million people. These assumptions are fairly accurate, but Congress has not always been this way. Only in the past few decades have legislators consistently sought reelection. In the late 1800s, it was common for two-thirds or less of House members to run for reelection. Even in the 1940s, two out of ten legislators sat out the next election. In recent Congresses, however, 90 to 95 percent of incumbents have run for reelection. Moreover, the technology, resources, and staff required to make frequent trips home and to be responsive to ever-expanding constituencies are of recent vintage. Since the 1950s, office budgets have quadrupled and personal staffs have doubled in size. This chapter looks at Congress from the members’ perspective. Legislators exhibit a range of personal goals, but most modern legislators see politics as a career and view reelection as essential to the achievement of their goals. Over time, they have granted themselves the resources to pursue their electoral, policy, and other objectives simultaneously. Legislators, however, do not pursue all goals all the time, but exploit resources and opportunities selectively. We will see that there are important patterns and generalizations that can be made.