📚 Congress Education Center
Understanding How Congress Works, Then and Now
🏛️ How Congress Works
What is Congress?
Congress is the legislative branch of the U.S. federal government, consisting of two chambers: the House of Representatives and the Senate. It's responsible for making laws, representing the American people, and overseeing the executive branch.
The Two Chambers
House of Representatives
- 435 members - Apportioned by population
- 2-year terms - More responsive to public opinion
- Originates revenue bills - "Power of the purse"
- Impeachment - Can impeach federal officials
- Speaker of the House - Presiding officer from majority party
Senate
- 100 members - 2 per state regardless of size
- 6-year terms - Staggered elections every 2 years
- Advice and consent - Approves appointments & treaties
- Impeachment trials - Conducts trials for impeached officials
- Vice President - Serves as President of the Senate
The Legislative Process
1. Introduction
A bill is introduced in either the House or Senate (or both simultaneously). Members draft legislation and submit it to their respective chamber's clerk.
2. Committee Review
The bill is assigned to relevant committees who hold hearings, gather expert testimony, and can amend or reject the bill. Most bills die in committee.
3. Floor Debate
If approved by committee, the bill goes to the full chamber for debate, amendment, and voting. Requires a majority vote to pass.
4. Second Chamber
The bill must pass the other chamber in identical form. If modified, a conference committee reconciles differences.
5. Presidential Action
The President can sign the bill into law, veto it (requiring 2/3 override), or let it become law without signature after 10 days.
Key Concepts
- Filibuster - Senate procedure allowing unlimited debate, requiring 60 votes to end (cloture)
- Conference Committee - Temporary committee to reconcile House and Senate bill differences
- Congressional Budget Office (CBO) - Provides nonpartisan analysis of legislation's fiscal impact
- Congressional Record - Official record of floor proceedings and debates
📊 Congressional Approval Ratings
Congressional approval has fluctuated significantly over the decades, with recent years showing historically low levels of public trust following the longest federal government shutdown in U.S. history.
Historical Average: ~35% approval rate since 1974
All-Time Low: 9% in November 2013 (Gallup)
Current Disapproval: ~66% disapprove (January 2026)
2025-2026 Trend: Peaked at 29% in February 2025, dropped to 14-15% in October-November 2025 during shutdown, recovered to 17% in December 2025, rose to 23% in January 2026
By Party (Jan 2026): Congressional Republicans 34% favorable, Congressional Democrats 29% favorable (YouGov/Economist)
17% - Congressional Approval Rating (December 2025)
Source: Gallup Poll (Dec 1-15, 2025) | 79% Disapproval | By Party: R 37%, I 12%, D 6%
Why Approval Ratings Matter
Low approval ratings can impact election outcomes, legislative productivity, and public trust in democratic institutions. They reflect public perception of Congress's ability to address national priorities effectively.
Recent Context: The 2025 government shutdown (the longest in U.S. history) significantly impacted approval ratings, driving them to near-historic lows. As of early 2026, neither Republicans nor Democrats in Congress have majority approval, with Democrats seeing particularly sharp declines in favorability among their own party members (from 85% in November 2024 to 63% in January 2026).
📈 Congress: Then vs Now
Congress has evolved significantly over the past several decades. Here's a comparison of how Congress operated in the mid-20th century versus today.
Legislative Productivity
1960s-1980s
- Higher bipartisan cooperation
- More bills passed per session (400-600+)
- Committee chairs had more independence
- Regular order: bills through committees
- More moderate positions common
2020s (Current)
- Increased partisan gridlock
- 118th Congress: Passed fewer than 150 bills (fewest since 1980s)
- 119th Congress: 68 public laws enacted as of Jan 2026
- Stronger party leadership control
- More bypassing of committee process
- Growing ideological polarization
📊 119th Congress Statistics (As of January 2026)
House Composition: Republicans 220 - Democrats 215
Senate Composition: Republicans 53 - Democrats 45 - Independents 2
Public Laws Enacted: 68 laws (as of Jan 2026)
Bills Introduced (First 100 Days):
- House: 3,341+ bills and resolutions introduced
- Senate: 2,061 measures introduced
- 133 pieces of legislation enacted
Partisan Polarization
The ideological gap between Democrats and Republicans in Congress has widened dramatically since the 1970s.
Partisan Polarization Over Time (DW-NOMINATE)
Source: Voteview.com (UCLA Political Science Department) | Higher = More Polarized
1970s-1990s: Lower Polarization
- Overlap: Significant ideological overlap between parties
- Moderates: Many centrist members in both parties
- Bipartisanship: Regular cross-party voting on major legislation
- Examples: Social Security reform (1983), Clean Air Act (1990)
- Polarity Score: Low
2000s-Present: High Polarization
- Overlap: Almost no ideological overlap
- Moderates: Declining numbers of centrist members
- Bipartisanship: Rare, primarily on non-controversial bills
- Examples: Most major bills pass along party lines
- Polarity Score: Very High
Key Changes Over Time
1960s-1970s: Era of Reform
Congress reformed its internal structure, reduced committee chair power, opened up processes, and increased transparency. The Congressional Budget Act (1974) created the budget process.
1980s-1990s: Partisan Shift Begins
Southern realignment, gerrymandering, and media fragmentation begin contributing to growing partisan divides. Still maintained significant bipartisan cooperation.
2000s: Hyperpolarization
24-hour news cycle, social media, and geographic sorting deepen divides. Filibuster use increases dramatically. More "party-line" voting emerges.
2010s-Present: Extreme Polarization
Minimal bipartisan cooperation, record-low approval ratings, shutdowns, and increased use of procedural tactics. Geographic and media-driven sorting complete.
Factors Contributing to Modern Polarization
- Geographic Sorting: Americans increasingly live in politically homogeneous communities
- Media Fragmentation: Partisan news sources reinforce existing beliefs
- Primary Elections: More extreme candidates win primaries in safe districts
- Gerrymandering: Redistricting creates safe seats for both parties
- Campaign Finance: Outside groups reward ideological purity
- Social Media: Echo chambers amplify partisan messages
💡 Understanding the Impact
Understanding Congress's evolution helps citizens make informed decisions about representation, legislation, and democratic participation.
Why It Matters
- Affects how laws are made
- Impacts representation quality
- Influences policy outcomes
- Shapes public trust in government
How to Engage
- Track your representatives' voting records
- Understand the legislative process
- Participate in public hearings
- Vote in primaries and general elections
- Stay informed about key issues
📚 Data Sources & Citations
Congressional Approval Ratings
Primary Source: Gallup Polling Organization
Data Period: 1974-2026 (annual averages and key polling dates)
Latest Poll: December 1-15, 2025 (17% approval, sample: 1,016 adults, margin of error: ±4.0%)
Access: news.gallup.com/poll/1600/congress-public.aspx
Aggregated Data: RealClearPolling Congressional Job Approval
Congressional Favorability by Party
Source: The Economist/YouGov Poll
Latest Poll: January 23-26, 2026
Key Finding: Congressional Democrats 29% favorable (-33 net), Congressional Republicans 34% favorable (-24 net)
Access: today.yougov.com/topics/politics
Partisan Polarization Data
Source: Voteview.com (UCLA Political Science Department)
Scoring System: DW-NOMINATE (Dynamic Weighted NOMINATE)
Access: voteview.com
119th Congress Statistics
Source: Congressional Records & Research Services
Session: 119th United States Congress (January 3, 2025 - present)
Sources: Wikipedia, Quorum.us, Axios, Congress.gov
Note: Approval ratings represent aggregated polling data from multiple sources including Gallup, YouGov/Economist, and other major polling organizations. Polarization scores are calculated using the DW-NOMINATE methodology, the standard academic measure for congressional ideology. Data last updated: February 2026.
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