There is therefore little direct intercourse between Congress
and the administration, and no sense of interdependence and
community of action such as exists in other parliamentary
countries. Cabinet ministers may never have sat in Con-
gress, and the President himself is not necessarily the leader
of his party. Hence he does not sway the councils and guide
the policy of those members of Congress who belong to his
own side. No duty hes on Congress to take up a subject to
which he has called attention as needing legislation ; and, in
fact, the suggestions which he makes, year after year, are

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98 AMERICAN COMMONWEALTH

usually neglected, even when his party has a majority in
both Houses, or when the subject lies outside party lines.
The President and his Cabinet have no recognized
spokesman in either House. The only means the President
possesses of influencing members of Congress is through
patronage. The consequence has been to encourage secret
influence, which may of course be used for legitimate pur-
poses, but which, being exerted in darkness, is seldom above
suspicion. Thus by its exclusion from Congress the Exec-
utive is deprived of the power of leading and guiding the leg-
islature and of justifying in debate its administrative acts.
Next as to the power of Congress over the Executive.
Either House of Congress, or both Houses jointly, can pass
resolutions calling on the President or his ministers to take
certain steps, or censuring steps they have already taken.
