page_title: United States Congress
section_title: Public perceptions of Congress
hierarchical_section_title: United States Congress / Congress and the public / Advantage of incumbency / Public perceptions of Congress
context_page_description: The United States Congress is the bicameral legislature of the federal government of the United States and consists of two chambers: the House of Representatives and the Senate. The Congress meets in the United States Capitol in Washington, D.C. Both senators and representatives are chosen through direct election, though vacancies in the Senate may be filled by a governor appointment. Congress has 535 voting members: 435 representatives and 100 senators. In addition, the House of Representatives currently has six non-voting members, bringing the total membership of the US Congress to 541 or fewer in the case of vacancies.
  The sitting of a congress is for a two-year term, presently beginning every other January; thus, the current congress is the 116th. Elections are held every even-numbered year on Election Day. The members of the House of Representatives are elected for the two-year term of a congress representing the people of a single constituency, known as a district. Congressional districts are apportioned to states by population using the United States Census results, provided that each state has at least one congressional representative.
context_section_description: Prominent Founding Fathers writing in The Federalist Papers felt that elections were essential to liberty, that a bond between the people and the representatives was particularly essential, and that "frequent elections are unquestionably the only policy by which this dependence and sympathy can be effectually secured." In 2009, however, few Americans were familiar with leaders of Congress. The percentage of Americans eligible to vote who did, in fact, vote was 63% in 1960, but has been falling since, although there was a slight upward trend in the 2008 election. Public opinion polls asking people if they approve of the job Congress is doing have, in the last few decades, hovered around 25% with some variation. Scholar Julian Zeliger suggested that the "size, messiness, virtues, and vices that make Congress so interesting also create enormous barriers to our understanding the institution ... Unlike the presidency, Congress is difficult to conceptualize." Other scholars suggest that despite the criticism, "Congress is a remarkably resilient institution ... its place in the political process is not threatened ... it is rich in resources" and that most members behave ethically. They contend that "Congress is easy to dislike and often difficult to defend" and this perception is exacerbated because many challengers running for Congress run against Congress, which is an "old form of American politics" that further undermines Congress's reputation with the public:
  The rough-and-tumble world of legislating is not orderly and civil, human frailties too often taint its membership, and legislative outcomes are often frustrating and ineffective ... Still, we are not exaggerating when we say that Congress is essential to American democracy. We would not have survived as a nation without a Congress that represented the diverse interests of our society, conducted a public debate on the major issues, found compromises to resolve conflicts peacefully, and limited the power of our executive, military, and judicial institutions ... The popularity of Congress ebbs and flows with the public's confidence in government generally ... the legislative process is easy to dislike—it often generates political posturing and grandstanding, it necessarily involves compromise, and it often leaves broken promises in its trail. Also, members of Congress often appear self-serving as they pursue their political careers and represent interests and reflect values that are controversial. Scandals, even when they involve a single member, add to the public's frustration with Congress and have contributed to the institution's low ratings in opinion polls.
  — Smith, Roberts & Wielen
  An additional factor that confounds public perceptions of Congress is that congressional issues are becoming more technical and complex and require expertise in subjects such as science, engineering and economics. As a result, Congress often cedes authority to experts at the executive branch.
  Since 2006, Congress has dropped 10 points in the Gallup confidence poll with only 9% having "a great deal" or "quite a lot" of confidence in their legislators. Since 2011, Gallup poll has reported Congress's approval rating among Americans at 10% or below three times. Public opinion of Congress plummeted further to 5% in October 2013 after parts of the U.S. government deemed 'nonessential government' shut down.
caption: The Federalist Papers argued in favor of a strong connection between citizens and their representatives.
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