Congress is an exciting place. real power resides in its members, real social conflicts are tamed or exacerbated by its actions, and thousands of people – most of them good public servants – walk its halls every day. Much good work is done there. In recent years, Congress has passed widely applauded bills that have, among other things, approved new security measures for airports and funding for the war against terrorism; granted important civil rights to women, minorities, and the disabled; given parents job protection so they can care for sick children; forced states to reduce barriers to voter registration and supported reforms of voting processes; expanded funding for college students; and limited what lobbyists can give to legislators.

Congress is a frustrating place as well. It is not easy to understand. Its sheer size – 535 members and more than 25,000 employees – is bewildering. Its system of parties, committees, and procedures, built up over 200 years, is remarkably complex and serves as an obstacle to public understanding. Perhaps most frustrating is that its work product, legislation, is the product of a process marked by controversy, partisanship, and bargaining. Even some members of Congress are uncomfortable with the sharp rhetoric and wheeling and dealing that are hallmarks of legislative politics.