Safe Seats, Seniority, and Power in Congress

The president's difficulties in inducing Congress to pass his legislative program are usually ascribed to the different constituencies of the two institutions. This difference would make for disharmony under any circumstances, but it is said to be particularly important because the seniority system bestows the most power on congressmen whose constituencies are most unlike the president's. His policy commitments are responses to the needs of a heterogeneous, industrialized, urban society. The occupants of the most influential congressional positions come from districts that re-elect them regardless of national political trends. The representative from such a district “views with alarm the great issues that sweep the nation and threaten to disrupt the familiar and comfortable politics of his district,” which is usually characterized as a rural backwater. Both political parties are described this way. Because the Democrats have controlled Congress for all but four of the past 36 years, most illustrations of this thesis are drawn from conflicts between Democratic presidents and Democratic congresses. More specifically, the focus of attention is usually on the refusal of southern Democratic congressional leaders to support presidential legislative requests.