What Is Congressional Stagnation?

With only 71 bills signed into law from their first legislative session to 2024, the 118th Congress is on track to become the least productive in U.S. history. While gridlock and stagnation are certainly nothing new, our legislators are turning it into an art form. 

Join us as we discuss the problem of congressional stagnation, its history, and its causes. We’ll also outline possible solutions that are designed to transform our legislature into a more productive body that moves the country forward.  

Congressional Stagnation, Explained

Congressional stagnation refers to the phenomenon where incumbents in the U.S. Congress enjoy high reelection rates — often despite having very low approval ratings. This leads to a lack of new ideas, diminished legislative productivity, and resistance to significant political or policy changes. 

It’s almost as though they know they’ll get reelected no matter what, so why bother? 

In addition to extreme partisanship, this issue is often highlighted as a major reason for the perceived ineffectiveness of Congress in addressing the nation’s pressing problems. 

Historical Background and Context 

Our government was designed by the Founding Fathers with a system of checks and balances, intending to prevent any single entity from gaining too much power. However, they likely didn’t anticipate the high levels of incumbency seen today. 

In the early days of the United States, turnover in Congress was relatively high. Many early legislators did not seek reelection, viewing their service as a temporary duty rather than a career. This high turnover regularly introduced new ideas and perspectives into the legislative process.

Over the years, however, the role of the federal government expanded, the benefits of holding office increased, and the allure of a long-term congressional career became more appealing.

The Theory of Congressional Stagnation

The theory of congressional stagnation began to take shape in the mid-20th century, with political scientist David Mayhew talking about “vanishing marginals” as far back as 1974. This relates to the dwindling number of congressional races that could be considered competitive. He and other political analysts started noticing patterns of entrenched incumbency, where sitting members of Congress were increasingly difficult to unseat. 

This is highlighted by the gradual shift in how our country is governed. Over time, serving in Congress has become more professionalized and lucrative. The roles of Congress members expanded as the federal government took on more responsibilities. There is also the increased importance of legislative committees, the growing complexity of laws, and the rise of professional staff, all of which contributed to making a career in Congress more attractive and viable.

The trend has only intensified in recent decades.

The High Rate of Reelection for Incumbents

According to data compiled by Open Secrets, the reelection rate for incumbents in the 2022 Congressional elections was over 90% for both the House of Representatives and the Senate. These high rates of incumbency have been consistent for many election cycles, highlighting the entrenched nature of congressional seats.

Some examples of the longevity of incumbents in the U.S. Senate include:

• Patrick Leahy, who was elected to represent constituents in Vermont in 1963 and served until 2012

• Strom Thurmond, who was elected to represent South Carolina in 1954 and served until his death in 2003

• Robert Bryd, the longest-serving senator in U.S. history, who was elected in 1959 and served until 2010

• Mitch McConnell, who has an approval rating in the single digits and will soon enter his 40th year as a sitting U.S. Senator

However, it isn’t only senators who have an incumbent advantage. The longest-serving members of the U.S. House of Representatives include: 

• John Dingell of Michigan, who served in the House from 1955 to 2015; his widow, Debbie Dingell, took over his seat when he retired

• Jamie Ritten, a representative from Mississippi who served from 1941 to 1995, a total of 53 years

• Don Young of Arkansas, who served from 1973 until his death in 2022, a total of 49 years

There are currently seven politicians who have served in the House and Senate for a combined total of 40 years or more. Consider that senators are elected every six years, and members of the House of Representatives are elected to two-year terms. 

The Causes of Congressional Stagnation

What keeps incumbents in their seats despite low approval ratings, corruption, and other things that should push them out? It’s a combination of things, including:

1. Institutional Entrenchment: The institutional structures within Congress contribute to stagnation. The seniority system rewards long-serving members with powerful committee positions and leadership roles, creating a strong incentive to remain in office. An establishment party apparatus usually supports incumbents, providing resources and strategic assistance to ensure their reelection.

2. Economic and Social Factors: Economic stability and access to resources also play significant roles in congressional stagnation. Incumbents often have better access to campaign funds and influential networks. Moreover, the cost of running a competitive campaign has increased dramatically, making it difficult for challengers without substantial financial backing to mount a serious bid.

3. Financial Advantages: Incumbents have a significant financial edge over challengers. In the 2022 election cycle, incumbents in the House raised an average of $2.1 million for their reelection campaigns, compared to $400,000 raised by challengers. This resource disparity allows incumbents to run more effective campaigns, reach more voters, and counter any negative publicity more effectively.

Incumbents also reap the benefits of:

• Greater name recognition due to their time in office

• Access to better fundraising networks and more campaign funds

• Greater access to media coverage, further boosting their public profile

• Redistricting processes that can be manipulated to create safe seats for incumbents, reducing competition

There are legislative and institutional factors as well. These include a seniority system that grants more power and desirable committee assignments to long-serving members. Incumbents can also benefit from strong party loyalty and the support of the establishment apparatus.

In addition, voters may stick with familiar candidates due to apathy or satisfaction with the status quo. Officeholders can also use their position to provide services to constituents, garnering goodwill and support from voters.

The Consequences of Congressional Stagnation

Despite claims of necessary continuity that contribute to the high rate of incumbency, congressional stagnation is not without its consequences. These include:

1. Policy Gridlock: One of the most visible consequences of congressional stagnation is policy gridlock. Long-serving incumbents may become more focused on maintaining their positions than on pushing for substantial policy changes. This can lead to a reluctance to tackle controversial issues or to compromise with the opposing party, resulting in legislative deadlock.

2. Lack of Diversity: A stagnant Congress can also lack diversity in terms of age, race, gender, and socioeconomic background. The barriers to entry for new candidates, especially those from underrepresented groups, can result in a legislature that doesn’t fully reflect the demographics or interests of the broader population.

3. Innovation and New Ideas: A lack of turnover means fewer fresh perspectives and new ideas entering Congress. This can stifle innovation and adaptability in addressing emerging challenges.

Potential Solutions

All is not lost. Several things can be done to break through congressional stagnation and bring fresh perspectives to the legislative table. Here are a few of the most notable solutions:

1. Implementing Term Limits: Term limits are a frequently-proposed solution to congressional stagnation. By capping the number of terms a member can serve in Congress, term limits could ensure regular turnover. However, term limits also have drawbacks, such as the potential loss of experienced legislators and the increased influence of unelected staff and lobbyists.

2. Reforming Campaign Finance: Campaign finance reform is another crucial area for addressing congressional stagnation. Public financing of campaigns, stricter limits on campaign contributions, and enhanced transparency could help reduce the financial advantages of incumbents and level the playing field for challengers.

3. Addressing Gerrymandering: Gerrymandering, which is the manipulation of electoral district boundaries to favor one party, is a significant factor in congressional stagnation. Independent redistricting commissions, which remove the redistricting process from partisan control, can create more competitive districts and reduce the number of safe seats for incumbents.

4. Enhancing Voter Engagement: Increasing voter participation and engagement is essential for combating congressional stagnation. Efforts to make voting more accessible, such as same-day voter registration, extended voting periods, and mail-in voting, can encourage higher turnout and more competitive elections.

Final Thoughts

Congressional stagnation is a multifaceted issue with deep roots in the American political system. High reelection rates for incumbents have led to a lack of new ideas, decreased legislative productivity, and reduced representation. Addressing this problem requires a combination of institutional reforms, such as term limits and campaign finance reform, as well as efforts to increase voter engagement and ensure fair redistricting. 

By tackling these issues, it is possible to create a more dynamic and responsive Congress that better serves the needs and interests of the American people. You can find further information, resources, and solutions at GoodParty.org. 

We’re not a political party. We’re a movement with a mission to break the two-party system and create a government that works for all of us!